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CITY  BUILDING 


A  citation  of  methods  in  use  in  more  than  one  hundred 

cities  for  the  solution  of  important  problems 

in  the  progressive  growth  of  the 

American   Municipality. 


BY 

S.  H.  CLAY 

Secretary  of  the  Lexington  Commercial  Club 
LEXINGTON.  KENTUCKY 


Copyrighted  by  S.  H.  Clay,   1913 


Published  by 

Clark  Publishing  Company 

Cincinnati,  O. 

1913 


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<7TTO  the  men  who  have  chosen  for  their  life  work  the 
^  greatest  calling  in  the  economic  world;  to  the  men 
who  have  proven  themselves  true  statesmen;  to  the  men 
who  live  for  progress,  whose  motto  is  "growth,"  whose 
symbol  is  "life"  and  whose  characteristics  are  "industry, 
energy  and  optimism;"  to  the  newest  profession  in  the 
greatest  nation  under  the  sun,  the  commercial  secretary, 
this  book  is  humbly  dedicated. 


281505 


preface 


GTT  HE  best  way  in  which  to  build  a  city  is  through  co-operation.     The  best 
^*      way  to  secure  co-operation  is  through  the  commercial  organization. 

These  secured,  the  next  step  is  "to  do  something"  and  it  is  to  help  in 
accomplishing  this  that  this  book  has  been  written.  During  several  years  experi- 
ence as  a  commercial  secretary,  the  writer  has  come  to  the  conclusion  that  the 
secretaries  will  appreciate  the  effort  which  has  been  necessary  to  compile  the 
information  contained  herein  covering  experiences  of  commercial  organizations 
in  more  than  one  hundred  cities  in  meeting  and  solving  some  of  the  most  im- 
portant problems  in  city  building. 

This  volume  does  not  purport  to  give  advice.  It  hardly  assumes  such 
proportions  but,  if  it  can  be  of  value  by  way  of  suggestion  and  by  giving  at 
least  a  partial  record  of  what  many  cities  have  and  are  doing  for  progress^  then 
it  will  consider  itself  as  worth  while. 

The  profession  of  the  commercial  secretary  is  new.  His  work  is  arduous 
and  complicated.  There  has  been  a  paucity  of  effort  to  assist  him.  This  book 
is  the  first  effort  to  supply  him  with  a  guide  and  its  purpose  is  to  give  sugges- 
tions along  various  progressive  lines  in  this  great  calling  of  making  cities  better 
places  in  which  to  live  and  do  business. 

Therefore,  with  this  declaration  of  purposes,  this  book  is  launched  upon 
its  voyage  of  existence  with  the  hope  that  it  may  be  composed  of  timber  of  a 
character  to  withstand  the  storms  of  criticism,  the  rocks  of  incompetence,  the 
shoals  of  insufficiency  and  the  ice  and  calms  of  indifference. 

S.  H.  CLAY, 
Lexington,  Kentucky. 
March  1913. 


CONTENTS 


Chapter  1. — The  Commercial  Organization. 

I.  The  duty  of  the  commercial  organization. 

II.  Approved  methods  of  organization. 

III.  The  Commercial  Secretary. 

IV.  How  to  keep  the  organization  alive  to  its  best  work. 

V.     How  to  increase  the  membership  by  the  short  term  campaign. 
IV.     How  to  increase  the  membership  by  other  plans. 

Chapter  2. — Publicity. 

I.  The  value  of  and  how  to  secure  local  publicity. 

II.  The  personal  letter  campaign  to  prospective  citizens. 

III.  Booklets  and  folders. 

IV.  Special   publicity.     Post   card   day,  display   advertising,  challenge, 

contests  for  slogans,  etc. 

V.  The  news  bureau — how  to  organize  and  conduct  it. 
VI.    How  to  finance  the  publicity  fund. 

Chapter  3. — Location  of  Industries. 

I.  How  to  interest  prospective  industries  in  your  city. 

II.  How  to  judge  a  good  industry  from  a  bad  one. 

III.  How  to  locate  industries  by  the  Development  Company  plan. 

IV.  How  to  locate  industries  by  the  Credit  plan. 

V.    How  to  locate  industries  by  the  Town  Lot  plan. 
VI.     How  to  locate  small  industries  by  the  incubator  plan. 

Chapter  4. — Conventions. 

I.  The  value  of  conventions  for  advertising  your  city. 

II.  Special  publicity. 

III.  How  to  secure  conventions  by  letter  campaigns. 

IV.  How  to  secure  conventions  by  personal  campaigns. 
V.  How  to  organize  and  finance  a  convention  bureau. 

VI.    How  to  entertain  conventions. 

Chapter  5. — Extension  of  Retail  Trade. 

I.  How  to  conduct  a  snooping  carnival. 

II.  How  to  conduct  a  refund  of  fare  campaign. 

III.  The  efficacy  of  co-operative  advertising  in  new  territory. 

IV.  Celebrations,  pageants  and  similar  shows  are  good  trade  getters. 
V.  Souvenir  days  make  people  buy. 

VI.    Trains  are  packed  on  inbound-excursion  days. 

Chapter  6. — Extension  of  Wholesale  Trade. 

I.  How  to  conduct  trade  excursions. 

II.  How  to  organize  and  conduct  credit  associatiaons. 

III.  How  to  increase  market  by  advertising  in  new  territory. 

IV.  How  to  secure  more  wholesale  houses  for  market. 

V.    The  relation  of  the  wholesale  interests  to  the  railroads. 
VI.    How  to  secure  increased  trade  by  buyer's  excursions. 


Chapter  7. — Street  Building  and  Cleaning. 

I.  Educational  campaign  for  better  streets. 

II.  Materials  for  building  improved  streets. 

III.  How  to  build  streets  under  the  Ten  Year  Plan. 

IV.  How  to  build  streets  under  bond  issues. 
V.  Plans  for  cleaning  streets. 

VI.    Ordinances  which  assist  in  securing  cleaner  streets. 

Chapter  8. — Transportation. 

I.  How  to  secure  concessions  from*  the  railroads. 

II.  How  to  organize  a  Traffic  Bureau. 

III.  How  to  adjjust  freight  rates  with  the  Traffic  Bureau. 

IV.  How  to  manage  the  freight  audit  department. 

V.  How  to  prepare  complaints. 

VI.  The  Short  Term  Investigation. 

Chapter  9.— The  City  Beautiful. 

I.  Parks. 

II.  Playgrounds. 

III.  Ornamentation. 

IV.  Street  lighting. 

V.    Bill  board  elimination. 
VI.    Clean-up-days. 

Chapter  10. — Education. 

I.  Duty  of  your  commercial  organization  to  the  schools. 

II.  The  Small  School  Board  . 

III.  How  to  advertise  your  city  through  the  schools. 

IV.  The  effect  of  the  schools  upon  the  City  Beautiful. 

V.    The  relation  of  the  schools  to  the  industrial  interests  of  the  city. 
VI.     Practical  Education. 

Chapter  11. — Government  By  Commission. 

I.  How  the  plan  orginated  and  its  present  status. 

II.  What  is  Government  by  Commission. 

III.  What  has  it  accomplished. 

IV.  The  first  steps  to  secure  it. 

V.  The  essentials  of  the  charter. 
VI.     How  to  secure  it  for  your  city. 

Chapter  12. — Good  Roads. 

I.  The  importance  of  good  roads  to  a  community. 

II.  An  educational  campaign  for  better  roads. 

III.  Where  good  roads  are  found. 

IV.  Some  National  Highways. 

V.    Approved  methods  of  building  improved  roads. 
VI.    How  to  finance  construction  of  improved  roads. 

Chapter  13. — Agriculture. 

I.  Back  to  the  farm  movement. 

II.  The  municipal  market. 

III.  Special  publicity. 

IV.  How  to  organize  a  Grower's  Association. 

V.    The  improvement  of  present  day  farm  life  over  old  days. 

VI.  Colonization  method  of  upbuilding  farming  communities. 


The  Commercial  Organization 


CHAPTER  1. 

THE  COMMERCIAL  ORGANIZATION 


The  Duty  of  the  Commercial  Organization. 

Why  should  a  city  have  a  commercial  organization?  Because  if  it  lives  up 
to  its  duties,  it  will  be  the  most  potent  force  in  the  community  for  progress.  Its 
duties  are  to  do  anything  and  everything  necessary  for  and  incident  to  the  up- 
building and  the  better  building  of  the  city  and  its  environs.  Its  duty  is  not  only 
to  make  a  city  grow  but  also  to  make  it  a  better,  a  more  sanitary,  a  prettier 
and  more  enjoyable  place  in  which  to  live. 

Its  province  or  field  of  work  reaches  out  into  every  branch  and  takes  cog- 
nizance of  every  phase  of  the  city's  life.  The  commercial  interests,  wholesale, 
retail,  and  manufacturing;  the  professional  interests;  the  government  of  city, 
county  and  state,  the  social  side  of  the  city's  life  where  it  touches  the  question 
of  public  morals  and  health;  all  of  these  and  in  truth  every  channel  of  activity 
comes  under  its  practical  eye. 

The  commercial  organization  has  a  first  duty  in  that  it  must  bring  all  of  the 
elements  of  the  entire  community,  county  as  well  as  city,  together  into  one 
compact  body  working  for  the  uplift  of  the  community.  It  must  teach  the  indi- 
viduals composing  these  elements  the  lesson  of  achievement  through  co-opera- 
tion. It  must  arouse  the  citizenry  from  the  old  time  lethargy  to  a  quickejned 
interest,  and  always  and  everywhere  preach  the  gospel  of  sane,  safe  and  sound 
development,  unselfishness,  public-spiritedness  and  civic  pride.  Its  motto  must 
be,  "If  it's  good  for  the  community,  then  let  us  have  it."  What  helps  the  city  as 
a  whole,  has  a  like  beneficial  effect  upon  everyone  within  its  boundaries. 

Not  only  the  business  and  professional  men  make  good  "boosters,"  but  also 
the  young  men,  the  clerks  in  the  stores,  the  women  both  in  the  house  and  in 
the  office  or  store,  and  the  children  in  the  schools.  It  is  the  duty  of  the  com- 
mercial organization  to  so  spread  its  propaganda  of  development  as  to  obtain 
the  efficient  aid  of  all  these  forces.  Many  organizations  secure  much  of  their 
force  and  power  from  their  women's  auxilliaries.  In  campaigns  for  sanitation 
and  beauty  their  help  is  incalculable. 

The  commercial  organization  has  a  duty  toward  the  city  government  which 
it  cannot  afford  to  overlook  in  spite  of  the  howls  of  the  politician  who  knows 
his  power  is  on  the  decline  when  the  business  interests  cast  their  microscopic 
eyes  of  investigation  upon  his  maneuvers.  Every  effort  should  be  made  to  work 
with  the  administration  in  an  amicable  way,  but  if  this  is  not  possible,  it  is  the 
duty  of  the  commercial  organization  to  continue  to  interest  itself  in  the  affairs 
of  the  city  government. 

The  civic  body  has  this  right  because  its  members  are  the  heavy  taxpayers, 
its  business  men  make  the  city  habitable.  No  city  could  run  without  them. 
They  are  vital  and  so,  being  vital,  they  have  the  first  moral  right  to  speak  in  the 
control  and  management  of  the  city  affairs.  Omaha  has  a  Municipal  Affairs 
Committee  which  meets  on  the  same  day  as  the  City  Council.  They  consider  all 
proposed  measures  pending  and  give  their  recommendations  concerning  them. 

It  is  the  civic  body's  duty  to  interest  itself  in  all  legislative  matters  which 
may  have  an  effect  upon  the  city.  The  astute  ability  and  acumen  of  the  business 
mind  is  necessary  for  the  successful  handling  of  such  questions  as  taxation.    It 


•     . .  .   , 


10  City   Building 


needs  a  business  head  to  work  out  the  intricacies  of  financing  great  public  im- 
provements. The  unselfish  democracy  of  the  commercial  organization  is  needed 
to  keep  its  finger  on  the  pulse  of  the  whole  body  politic. 

It  is  the  duty  of  the  commercial  organization  to  conduct  its  affairs  upon  a 
business  basis.  Whether  in  the  location  of  industries  or  in  an  effort  to  secure 
new  and  larger  parks,  there  should  be  a  business-like  method  adopted. 

It  is  the  duty  of  the  civic  body  to  interest  itself  in  educational  matters. 
Upon  the  schcools  depend  the  future  ability  and  activity  of  the  city's  people. 
The  civic  body  can  and  should  exert  its  most  wholesome  influence  for  the  con- 
tinual development  of  the  school  system. 

It  is  the  duty  of  the  commercial  organization  to  give  sound  publicity  to  the 
city's  advantages  and  to  do  everything  in  its  power  to  eliminate  all  forms  of 
detrimental  publicity.  It  is  its  duty  to  endeavor  in  all  right  ways  to  attract  new 
residents  and  new  business  and  to  assist  in  their  location  in  all  legitimate  ways. 

In  Europe,  the  cities  have  at  least  one  municipal  expert  among  its  officers, 
frequently  the  clerk.  This  is  his  career  and  his  tenure  of  office  is  permanent. 
He  is  not  merely  a  keeper  of  records  but  in  him  all  public  activities  center.  He 
is  sought  as  the  authority  on  all  municipal  matters,  especially  those  concerning 
his  own  city.  He  is  the  adviser  of  all  the  officials.  He  is  constantly  compiling 
data  on  municipal  subjects  for  the  civic  library.  It  is  the  duty  of  the  commer- 
cail  organization  to  fill  the  place  of  this  expert  as  far  as  possible. 

The  commercial  organization  should  interest  itself  in  the  welfare  and  de- 
velopment of  the  surrounding  country,  the  state  and  the  nation.  If  such  an 
organization  is  good  for  the  city,  it  is  good  for  the  state  and  the  nation.  Texas, 
West  Virginia,  Michigan,  North  and  South  Carolina,  Georgia,  Kentucky,  and 
many  other  states  have  organized  their  state  bodies.  The  movement  has  spread 
to  the  nation  itself  and  the  Chamber  of  Commerce  of  the  United  States  of 
America  is  the  result. 

In  short,  the  duty  of  the  commercial  organization  is  to  do  any  and  all  things 
necessary  and  incident  to  the  upbuilding  of  the  city,  county,  state,  and  nation  in 
all  channels  of  commercial  and  social  activity  and  this  duty  should  be  performed 
upon  an  impartial,  unselfish,  non-political  basis  and  in  a  wise  and  safe  manner. 


The  Commercial  Organization  11 


II 
Approved  Methods  of  Organization 


The  commercial  organization  of  any  city  should  be  an  example  of  efficiency. 
There  must  be  a  thoroughly  systematic  plan  of  organization.  It  should  be  as 
nearly  automatic  as  possible.  But  it  is  impossible  to  reduce  all  of  the  work  to 
routine. 

The  efficient  organization  is  one  where  action  can  be  obtained  without  delay. 
A  system  should  be  in  use  which  will  at  once  automatically  place  any  matter 
introduced  on  the  calendar  for  action,  either  by  the  board  of  directors,  somei 
standing  committee,  the  membership  of  the  organization,  or  by  the  executive 
officer. 

The  first  and  last  control  of  the  organization  is  in  the  membership.  But 
because  large  bodies  are  unwieldy  and  because  of  the  great  difficulty  in  securing 
quick  action  when  matters  are  handled  exclusively  by  the  entire  membership,  a 
smaller  body,  usually  called  a  board  of  directors,  is  elected  to  act  for  the  organi- 
zation. 

Most  organizations  are  incorporated.  This  makes  the  members,  stockhold- 
ers, and  the  board  of  directors,  the  governing  body,  or  representatives,  of  the 
stockholders. 

The  executive  officer,  secretary  or  general  manager,  is  the  person  in  the 
position  of  chief  responsibility.  As  the  term  implies  he  has  supervision  over  all 
the  work  of  the  organization  and  its  departments. 

Next  in  order  come  the  standing  committees  or  departments,  also  special 
committees,  which  are  created  for  some  particular  endeavors  which  for  any 
reason  are  not  assigned  to  the  standing  committees. 

There  is  a  wide  difference  of  opinion  concerning  the  number  which  should 
compose  the  membership  of  standing  committees.  Some  contend  that  the  num- 
ber should  be  small  in  order  to  secure  the  most  efficient  work,  while  others  argue 
that  every  member  of  the  association  should  be  a  member  of  some  committee 
in  order  to  more  thoroughly  arouse  his  interest.  Where  the  latter  method  is  in 
use,  no  quorum  is  necessary  for  committee  work,  although  a  quorum  is  necessary 
for  the  governing  board. 

In  regulating  the  number  of  the  standing  committees,  a  good  method  in  use 
in  several  of  the  cities  is  fast  finding  favor.  There  is  a  committee  for  each 
one  of  the  directors  save  one,  the  president  of  the  association.  The  advantage 
of  the  plan  is  in  the  fact  that  no  meeting  of  the  board  can  be  held  without  a; 
majority  of  the  chairmen  of  committees  or  departments  of  the  association  being 
represented  from  whom  reports  can  be  had. 

These  standing  committees  are  given  names  which  indicate  their  individual 
lines  of  work,  as  for  example,  the  Transportation  Committee  has  charge  of  all 
matters  which  pertain  to  freight  and  passenger  traffic ;  the  Public  Utilities  Com- 
mittee has  jurisdiction  over  all  matters  pertaining  to  the  public  service  corpora- 
tions such  as  the  telephone,  telegraph,  power,  gas  and  street  railway  companies ; 
the  Retail  Trade  Extension  Committee  has  charge  of  all  matters  pertaining  to 
the  retail  interests  and  so  on. 


12  City   Building 


The  Board  of  Directors  has  regular  meetings  and  the  standing  committees 
also.  Special  meetings  of  each  can  be  held  any  time  under  special  provisions. 
The  entire  membership  has  regular  meetings  during  the  year,  either  annually, 
quarterly,  or  monthly.  The  Board  of  Directors  has  the  direction  of  the  policy 
of  the  organization  and  its  finances.  Where  questions  of  policy  or  association 
finances  are  involved,  the  standing  committees  cannot  take  final  action  but  must 
refer  such  matters  to  the  board. 

One  of  the  most  efficient  organizations  in  the  country  is  at  Buffalo,  N.  Yv, 
in  the  Chamber  of  Commerce.  The  work  is  done  through  departments.  First, 
Officers  and  Directors ;  Second,  Thirty-one  Standing  Committees ;  Third,  The 
Industrial  Bureau,  having  a  paid  secretary ;  Fourth,  The  Convention  Bureau, 
with  a  paid  secretary;  Fifth,  the  Publicity  Bureau;  Sixth,  The  Traffic  Bureau; 
Seventh,  The  Charities  and  Survey  Bureau;  Eighth,  The  Real  Estate  Associa- 
tion i  Ninth,  The  Retail  Merchants  Association;  Tenth,  The  Wholesale  Mer- 
chants Association.  Each  of  these  departments  is  under  its  proper  committee 
and  each  has  its  paid  Secretary. 

Montgomery,  Alabama,  also  has  a  form  of  organization  very  similar  to  the 
above.  Its  co-ordinated  departments  are  the  Freight  Bureau,  Real  Estate  Ex- 
change, Builders  Exchange  and  the  Credit  Men's  Association  besides  the  vari- 
ous standing  committees. 

Some  cities  have  several  separate  organizations.  This  is  generally  conceded 
to  be  a  mistake  and  many  have  recently  consolidated  the  interests  of  all  into  one 
compact  body.  Cincinnati,  Louisville,  Birmingham,  Indianapolis,  and  other 
cities  which  have  two  or  more  associations  are, now  working  on  merger  plans. 

The  financing  of  the  commercial  organization  is  a  problem.  The  general 
method  of^solution  is  on  some  basis  of  membership.  Dues  in  varying  amounts 
are  charged  for  each  membership.  These  are  paid  either  annually,  quarterly,  or 
by  the  month. 

Charleston,  S.  C,  has  a  rate  of  $25.00  per  year  for  a  full  membership  with 
one  full  vote.  Memberships  are  based  on  an  individual's  or  firm's  worth.  The 
minimum  is  a  half  membership  with  a  half  vote.  Large  concerns  are  required 
to  take  out  as  many  memberships  as  their  \vorth  indicates  in  the  scale. 

Rochester,  N.  Y.,  has  adopted  the  individual  form  of  membership  instead 
of  the  corporation  or  firm  form. 

Buffalo,  N.  Y.,  has  four  classes  of  membership.  Class  A  members  pay 
$250.00  per  year,  Class  B  $225.00,  Class  C  $80.00  and  Class  D  $30.00.  The 
amount  of  an  individual's  membership  depends  upon  his  worth. 

Macon,  Ga.,  has  the  Pay  Roll  plan.  All  the  members  of  the  Chamber  of 
Commerce  agree  to  pay  so  much  per  week.  This  amount  each  member  remits 
each  week  by  check.  It  is  claimed  for  this  plan  that  more  revenue  is  secured 
and  that  the  collection  entails  the  minimum  of  expense  and  labor. 

Another  plan  in  very  extensive  use  is  the  three-year  membership.  Addi- 
tional information  on  this  phase  of  the  question  will  be  found  under  the  subjects 
of  "How  to  increase  the  membership  by  the  short  term  campaign,"  and  "How  to 
increase  the  membership  by  other  plans." 


The  Commercial  Organization  13 

III 
The  Commercial  Secretary 


The  work  of  the  commercial  organization  is  scientific  development,  there- 
fore to  have  ultimate  success  systematic,  business  principles  must  be  used.  Also, 
the  commercial  secretary,  or  the  executive  officer,  no  matter  what  his  title  may 
be,  should  be  a  man  thoroughly  grounded  in  the  fundamental  principles  of  eco- 
nomics which  underly  all  business  structure.  He  should  be  surrounded  with 
every  assistance  if  he  is  to  show  ability. 

Too  many  secretaries  are  handicapped  with  a  lack  of  authority,  a  fault  of 
the  organization.  No  matter  what  sort  of  a  proposition  is  presented  to  him,  he 
can  take  no  action  but  must  refer  the  matter  to  the  board  of  directors  or  to 
some  committee.  No  matter  how  good  an  idea  he  may  have  for  some  special 
development  work,  no  matter  how  much  time  he  has  spent  in  the  preparation  of 
a  campaign  to  secure  such  development,  he  is  powerless  to  act.  He  must  submit 
the  matter  to  others  before  he  can  go  ahead.  Many  a  good  campaign  has  been 
spoiled  by  a  bad  case  of  indigestion  on  the  part  of  those  to  whom  the  proposition 
is  submitted. 

To  avoid  such  disastrous  conditions,  many  cities  have  adopted  the  plan  of 
making  the  secretary,  the  manager  and  arming  him  with  authority  to  act  for  the 
association  with  the  Board  of  Directors  as  a  check  against  mismanagement. 
This  method  is  the  application  of  one  of  the  first  principles  in  the  business 
management  of  a  corporation. 

Too  much  emphasis  cannot  be  placed  upon  this  important  point.  If  the 
executive  officer  of  the  commercial  organization  is  given  power  to  do  his  work, 
he  can  then  accomplish  much  greater  results  in  development  work  than  he  can 
otherwise.  He  may  make,  his  mistakes,  but  he  is  human  and  he  is  no  more 
liable  to  make  those  mistakes  than  are  his  directors.  If  he  is  an  individual  in- 
capable of  undertaking  such  a  responsibility,  then  he  has  no  business  in  the  posi- 
tion at  all  and  a  change  is  necessary.  This  is  simply  a  business  proposition. 
His  work  is  business-like  work  and  he  should  be  treated  in  a  business-like 
manner. 

Space  will  not  permit  going  into  details  concerning  the  qualifications 
which  a  commercial  executive  should  possess.  Suffice  it  to  say,  he  should 
have  a  good  business  education ;  he  should  be  a  good  mixer ;  he  should  be 
optimistic  and  not  prone  to  be  overcome  by  discouragements;  he  should  be 
active,  energetic,  amiable  and  above  all  should  be  absolutely  democratic  in  his 
dealings  with  everyone. 

His  work  should  not  be  handicapped  by  a  constant  scramble  for  sufficient 
funds  with  which  to  carry  on  his  work.  The  collection  of  dues  is  a  problem 
with  all  commercial  organizations.  Some  few  organizations  still  cling  to  the 
idea  that  it  is  the  business  of  the  secretary  to  collect  these  dues,  to  see  the 
members  of  the  organization  in  person  and  to  persuade  and  cajole  them  into 
paying.  Most  of  the  successful  cities,  however,  treat  this  subject  also  in  a  busi- 
ness-like manner.  It  is  their  contention  that  the  secretary,  or  executive  officer, 
is  paid  too  high  a  price  to  make  of  him  a  bill  collector  and  that  the  members 
should  be  required  to  pay  their  dues  without  solicitation  excepting  of  course 
the  written  notice  which  is  regularly  mailed  from  the  office  of  the  secretary. 


14  City   Building 


Such  cases  as  delinquents  are  handled  entirely  by  another  person  who  is  a  bill 
collector  either  in  the  constant  employ  of  the  association  or  secured  for  certain 
periods.  The  secretary  should  be  spending  the  time  necessary  for  the  collection 
of  dues  in  some  other  work,  planning  some  good  development  for  the  city.  In 
many  places  this  work  of  looking  after  the  delinquents  devolves  upon  the  mem- 
bers of  the  membership  committee. 

That  the  secretary  of  the  commercial  organization,  no  matter  how  good 
a  man  he  may  be,  cannot  do  the  work  of  the  organization  without  workers  in 
his  ranks  is  beyond  question.  He  cannot  do  all  the  work  that  is  to  be  done 
alone ;  it  is  the  duty  of  every  business  and  professional  man  to  co-operate  with 
him  loyally  and  to  do  all  in  his  power  to  help  the  business  body. 

It  is  also  the  duty  of  the  officers  to  stand  by  the  secretary.  He  is  really  the 
man  who  is  on  the  firing  line,  and  needs  the  hearty  co-operation  of  the  officers 
and  the  members.  No  one  man,  it  matters  not  how  resourceful,  how  energetic, 
or  how  aggressive  he  may  be,  can  do  everything,  and  the  success  of  the  associa- 
tion and  its  work  is  in  proportion  to  the  co-operation  that  is  given  the  executive 
officer. 

The  work  of  the  commercial  secretary  has  become  today  a  profession. 
Ten  years  ago  there  were  few  in  the  country  who  gave  their  entire  time  to  this 
work,  but  today  there  can  hardly  be  found  a  town  of  ten  thousand  population 
but  what  has  its  paid  secretary  giving  his  whole  time  to  the  work  of  developing 
the  resources  of  that  community,  advertising  those  resources  and  in  short  doing 
all  he  can  with  what  assistance  and  co-operation  he  can  secure  from  the  mem- 
bers of  the  organization  to  make  that  city  a  better  and  more  desirable  place  in 
which  to  live.  He  has  improved  to  such  an  extent  during  this  decade  that  today 
he  stands  before  the  country  as  a  civic  expert. 

The  commercial  secretary  has  no  easy  time.  His  work  is  hard  because  it 
covers  almost  innumerable  fields  of  endeavor,  every  one  of  which  requires 
earnest  thought  and  consideration  in  order  to  successfully  solve  the  problems 
which  are  constantly  arising.  He  deserves  the  co-operation  and  the  sympathy 
of  every  citizen  in  his  community.  The  former  means  his  success  and  the  latter 
means  more  energy  and  greater  activity  on  his  part. 


The  Commercial  Organization  15 

IV 
How  to  Keep  the  Organization  Alive  to  its  Best  Work 


To  keep  the  commercial  organization  alive  to  its  best  work,  every  member 
must  be  so  filled  with  enthusiasm  for  the  development  of  his  city,  so  imbued 
with  civic  pride  and  so  educated  to  realize  the  importance  and  marvelous  oppor- 
tunities presented  through  the  co-operative  efforts  of  himself  and  his  neighbors 
that  he  cannot  resist  the  call  of  that  opportunity.  To  generate  such  enthusiasm, 
to  create  such  civic  pride,  to  consummate  such  education,  that  is  the  question. 

In  the  first  place  there  is  a  nucleus  with  which  to  start.  Every  city  has 
its  "live  wires" — men  who  have  already  reached  the  point  where  they  see  the 
value  of  co-operation.  Upon  these  few  devolves  the  burden  of  propagating  this 
gospel.  They  must  take  the  lead  and  through  their  combined  persuasive  eflfoirts 
gradually  add  to  their  ranks  until  the  whole  army  is  enlisted. 

Nothing  succeeds  like  success  and  the  commercial  organization  which  shows 
results  is  the  one  which  adds  to  its  working  force  former  luke-warm  members.- 
There  are  always  to  be  found  men  who  want  to  be  in  the  "swim."  Every  success- 
ful campaign  will  bring  in  a  few  who  can  be  made  good  consistent  workeVs  if 
properly  handled. 

There  are  four  kinds  of  co-operation  needed  in  the  commercial  organiza- 
tion, financial,  moral,  intellectual  and  physical.  These  must  be  present  if  the 
organization  is  to  keep  itself  alive  to  its  best  work.  Men  must  give  of  their 
money,  they  must  morally  support  the  organization  in  campaigns  where  it  is 
necessary  to  go  against  some  particular  interest  in  subserving  the  interests  of 
the  majority,  they  must  give  to  the  organization  their  best  thought,  counsel  and 
advice  and  they  must  be  ready  to  give  their  time  and  physical  work  when  such 
is  needed. 

It  is  vitally  necessary  for  the  organization  to  keep  its  members  informed  as 
to  the  work  which  is  being  prosecuted.  The  practical  thing  for  the  officers  to 
do  is  to  have  stated  membership  meetings  to  acquaint  them  and  the  public  with 
organization  efforts.  Every  member  should  be  made  to  feel  that  he  is  a  com- 
ponent part  of  the  organization ;  that  there  is  the  same  responsibility  resting 
upon  him  for  the  success  of  the  organization  as  there  is  on  any  one  else. 

Each  member  should  be  given  something  to  do.  He  should  be  shown  some 
favor  not  accorded  to  non-members.  Many  cities  put  every  member  on  some 
one  of  the  standing  committees  and  every  effort  is  made  to  make  each  one  feel 
that. part  of  the  work  devolves  upon  him. 

The  social  side  of  the  question  will  bear  consideration.  Many  cities  own 
their  own  commercial  organization  buildings  in  which  are  conducted  clubs,  which 
combine  the  social  features  with  the  business  work.  With  such  plants  it  is  com- 
paratively easy  to  secure  the  interest  of  many  members  in  some  new  work  con- 
templated because  they  are  attracted  to  the  building  by  the  social  features 
thereto  attached. 

The  aim  and  purpose  of  the  organization  is  to  help  the  city.  Consequently 
in  the  regular  meetings  subjects  should  be  introduced  and  discussed  which  have 
a  direct  bearing  upon  the  local  situation.  Some  cities  might  be  interested  in  the 
open-door  policy  in  China  but  more  would  be  interested  in  such  questions  as 


16  City   Building 


"how  to  get  our  home  people  to  deal  more  exclusively  with  home  merchants." 
Such  a  subject  appeals  to  every  manufacturer  and  merchant  and  his  interest  is  at 
once  aroused. 

Through  all  of  the  work  there  should  be  wholesome  pleasures  interspersed 
to  secure  and  retain  the  co-operation  of  some  classes  of  members.  This  phase 
should  not  be  used  to  the  exclusion  of  the  business  to  be  transacted  but  there 
are  times  when  a  relief  from  incessant  work  will  bring  most  beneficial  results. 
Many  cities  conduct  annual  outings  with  great  success.  Camping  trips  and  one 
day  picnics  are  promoted  for  the  purpose  of  not  only  getting  the  members  to 
rub  elbows  with  one  another,  but  also  to  give  the  organization  the  opportunity 
to  increase  individual  interest  in  the  association  itself.  Trade  excursions  are 
very  beneficial  in  this  respect. 

Jacksonville,  Florida,  has  as  one  of  its  standing  committees  the  Good  Enter- 
tainment Committee  and  Hot  Iron  Club.  This  committee  arranges  the  programs 
for  three  or  four  special  sessions  of  the  organization  during  the  year  at  which 
amusing  features  are  produced.  These  features  are  usually  burlesques  or  take- 
offs  on  some  local  happenings,  conditions  or  people.  They  are  carefully  ar- 
ranged to  carry  a  point  or  lesson  so  that  while  the  members  are  enjoying  them- 
selves they  are  also  unconsciously  assimilating  some  good  thing,  referring  to 
some  needed  development  in  the  city. 

Upon  the  secretary,  or  executive  officer,  largely  depends  the  duty  and  neces- 
sity of  always  keeping  the  work  of  the  organization  going.  The  organization 
which  takes  periodic  spurts  is  not  of  the  same  value  as  the  one  which  kee»ps 
continually  at  it.  The  constant  use  of  the  local  newspapers  will  be  found  a 
splendid  way  in  which  to  keep  the  membership  and  the  public  generally  in- 
formed as  to  what  is  going  on. 

To  sum  up,  the  interest  of  the  member  must  be  secured  to  obtain  his  co- 
operation and  after  that  he  must  be  constantly  interested  in  order  to  retain  his 
co-operation.  His  co-operation  is  vital  for  success.  His  interest  can  be  secured 
by  keeping  him  informed  of  the  work  in  hand,  by  making  him  feel  his  responsi- 
bility and  by  appealing  to  his  civic  pride,  his  socal  side  and  his  selfish  interests. 


The  Commercial  Organization 17 

V 
How  to  Increase  the  Membership  by  the  Short  Term  Campaign 


The  organization  of  a  short  term  campaign  is  as  follows.  The  Secretary, 
or  executive  officer  of  the  organization,  is  usually  the  general  in  chief.  He,  to- 
nary  publicity  efforts  and  the  creation  of  great  enthusiasm  among  the  citizens 
of  a  community.  Many  cities  hold  such  campaigns  annually  and  it  is  no  un- 
usual thing  to  more  than  double  the  former  membership. 

The  organization  of  a  short  term  campaign  is  as  follows.  The  Secretary 
or  executive  officer  of  the  organization  is  usually  the  general  in  chief.  He,  to- 
gether with  the  governing  board,  appoints  the  committees  who  have  charge  of 
the  different  phases  of  the  campaign,  both  the  preliminary  work  and  the  actual 
securing  of  members.  The  usual  committees  are  the  Prospect  Committee,  whose 
duty  it  is  to  make  out  a  card  index  system  of  the  citizens  whom  it  is  desired 
to  solicit  as  members,  the  Publicity  Committee,  whose  duty  it  is  to  have  charge 
of  all  publicity;  the  Organization  Committee,  whose  duty  it  is  to  secure  work- 
ers and  to  select  captains  for  the  teams ;  the  Arrangement  Committee,  whose 
duty  it  is  to  make  all  other  preparations  such  as  securing  headquarters  where  a 
noon-day  luncheon  is  usually  served  to  the  workers  by  the  organization  gratis. 

The  secretary  keeps  in  close  touch  with  the  work  of  these  committees  and 
the  directors  also  give  of  their  time  to  supervise  this  work.  The  Prospect  Com- 
mittee has  printed  blank  cards  containing  the  following  information  concerning 
the  prospect;  name,  business  address,  home  address,  occupation,  person  or  team 
to  whom  prospect  is  assigned,  and  remarks.  This  committee  fills  out  these  cards 
in  duplicate,  one  for  the  solicitor  while  the  other  is  retained  in  the  office  files 
in  order  to  obtain  a  complete  report  upon  each  and  every  person. 

The  Publicity  Committee  prepares  the  newspaper  stories  concerning  work 
of  the  organization  and  the  need  for  an  increased  membership  in  order  to  carry 
on  new  and  additional  development  work.  This  committee  also  prepares  the 
other  blank  forms  such  as  daily  envelopes,  reports,  folders,  or  other  special 
publicity. 

Where  a  daily  lunch  is  served  the  Arrangement  Committee  is  required  to 
prepare  a  suitable  place  for  serving  the  lunch,  tables,  chairs,  dishes,  etc.,  besides 
purchasing  the  food  and  having  it  cooked  and  served. 

The  Organization  Committee  secures  the  promise  of  as  many  present  mem- 
bers as  possible  to  solicit  new  members.  This  committee  also  selects  two  men 
to  be  Generals  of  Divisions.  The  committee  with  the  assistance  of  these  two 
division  commanders  selects  the  captain  of  ten  teams  for  each  division,  making 
twenty  teams  in  all. 

A  meeting  of  all  captains  is  held,  at  which  they  choose  by  lot  their  team 
mates  from  the  list  of  promised  solicitors.  The  number  of  members  of  each 
team  is  dependent  entirely  upon  the  number  of  promised  workers.  The  purpose 
of  the  two  divisions  and  also  of  the  sub-division  of  teams  is  to  excite  a  friendly 
rivalry  among  the  workers. 

With  the  work  of  these  committees  completed  up  to  this  point,  the  campaign 
is  ready  to  be  launched.  The  publicity  is  begun  several  days  before  the  opening 
date  and  is  kept  up  continually  throughout  the  campaign  period.     A  general 


18  City   Building 


meeting  of  all  solicitors,  team  captains,  division  managers,  and  officials  of  the 
organization  is  usually  held  on  the  evening  before  the  campaign  opens.  A  suc- 
cessful method  to  secure  a  large  attendance  at  this  meeting  is  to  tender  the 
workers  a  banquet.  The  most  enthusiastic  speakers  that  can  be  secured  compose 
the  programme. 

At  this  meeting  the  first  cards  of  prospective  members  are  given  out  to  the 
workers.  The  best  method  of  distributing  these  cards  is  by  auction.  The  name 
of  the  prospect  is  read  aloud  and  the  first  person  who  speaks  for  that  card 
secures  it.  No  solicitor  is  allowed  to  solicit  a  prospect  unless  he  has  that  pros- 
pect's card.  The  passing  out  of  the  card  at  this  meeting  gives  the  workers 
material  on  which  to  work  during  the  next  morning  up  to  the  noon  hour. 

All  of  the  workers  are  expected  to  come  to  the  noon  lunch  prepared  to 
make  a  report  to  his  captain.  After  the  meal  is  served,  reports  are  called  for 
by  teams.  One  division  commander  will  call  for  the  reports  of  his  teams,  after 
which  the  other  division  commander  calls  for  the  reports  from  his  teams,  the 
next  day  this  order  is  reversed.  While  the  reports  are  being  made,  a  great  deal 
of  enthusiasm  is  engendered  by  the  applauding  of  especially  good  work  on  the 
part  of  any  of  the  teams.  After  the  reports  are  concluded,  each  day's  total  is 
announced  and  placed  upon  a  large  black-board  on  the  wall  as  a  constant  re- 
minder to  the  workers  of  their  relative  standing.  One  or  two  short  snappy 
speeches  are  given. 

The  solicitors  are  provided  with  membership  blanks  which  the  prospect 
signs.  There  have  been  many  successful  modifications  of  the  above  plan.  The 
one-day  campaign  is  one  of  them. 

In  Dayton,  Ohio,  such  a  campaign  was  conducted.  Beginning  several  weeks 
prior  to  "Booster  Day"  a  series  of  follow-up  letters  were  mailed  to  600  prospects. 
On  "Booster  Day"  about  50  of  the  representative  business  men  devoted  their 
entire  time  to  securing  new  members.  More  than  400  people  were  personally 
seen,  249  new  members  were  secured.  Applications  were  left  at  a  number  of 
places  where  the  prospects  were  out  of  the  city  or  otherwise  engaged  and  many 
of  them  signed  application  blanks  and  sent  them  in  later. 

Chattanooga,  by  a  similar  campaign,  added  810  new  members  in  30  hours 
work  at  annual  dues  of  $25.00  with  22  committees  of  three  workers  each.  In 
this  campaign,  the  city  was  divided  into  blocks.  The  new  members  were  asked 
to  sign  up  for  three  years.  Birmingham,  Alabama,  added  1200  new  members  by 
the  short  term  campaign. 


The  Commercial  Organization  19 


VI 
How  to  Increase  Membership  by  Other  Plans 


While  the  short  term  method  of  increasing  the  membership  of  the  commer- 
cial organization  is  most  effective  for  increasing  that  membership  quickly,  a 
number  of  cities  do  not  consider  the  campaign  effective  for  securing  the  better 
class.  It  is  contended  that  a  large  percentage  of  new  members  secured  undler 
the  excitement  of  an  enthusiastic  campaign  do  not  continue  as  members,  but 
very  soon  become  delinquents  and  are  like  so  much  dead  wood  so  far  as  actual 
work  and  co-operation  is  concerned.  But  be  this  as  it  may,  a  number  of  cities 
have  adopted  other  methods  of  securing  members. 

One  plan  is  where  the  membership  committee  of  the  organization  determines 
to  secure  one  new  member  each  during  a  certain  period  of  time.  This  plan,  of 
course,  is  worked  without  creating  special  enthusiasm  and  without  giving  forced 
publicity  to  the  campaign.  This  plan  can  also  be  extended  to  the  entire  member- 
ship of  the  organization. 

In  Omaha,  Nebraska,  a  plan  very  much  like  the  above,  and  yet  having  some 
of  the  features  of  the  short  term  campaign  was  adopted  with  the  result  thai 
more  than  500  new  members  were  secured  from  January  1,  to  March  31,  191,2. 
This  campaign  was  conducted  entirely  by  the  membership  committee,  composed 
of  twenty-five  young  men  who  worked  individually.  They  met  every  Saturday 
at  noon.  The  feature  of  the  campaign  was  the  wisdom  of  selection  of  prospects. 
Forty-three  members  were  secured  during  the  last  afternoon.  In  Worcester, 
Massachusetts,  last  year,  a  campaign  was  conducted  during  the  month  of  June 
in  which  a  large  number  of  new  members  were  secured.  A  feature  of  this! 
campaign  was  the  donation  by  a  public-spirited  citizen  of  a  handsome  loving 
cup  as  a  prize  to  the  team  which  secured  the  largest  number  of  members.  The 
offer  of  this  trophy  resulted  in  the  creation  of  a  remarkable  amount  of  enthusi- 
asm. One  of  the  teams  made  very  satisfactory  use  of  an  automobile  in  the 
solicitation  of  members.    In  one  day  the  automobile  party  secured  thirty-two. 

Another  method  is  the  letter  campaign.  A  carefully  selected  list  of  pros- 
pects is  made  up  and  at  regular  intervals,  advertising  matter  and  letters,  telling 
of  the  work  which  the  commercial  organization  is  not  only  doing,  but  wants  to 
do  are  mailed  to  the  prospect.  Periodically,  invitations  to  become  members,  to 
these  prospects  are  mailed.  Application  blanks  are  enclosed.  The  prospect  is 
shown  how  a  membership  will  benefit  him.  He  is  made  to  feel  that  as  a  citizeta 
of  the  community,  obtaining  his  living  from  that  community,  he  has  an  unavoid- 
able and  certain  responsibility  in  the  city's  welfare. 

If  the  prospect  does  not  respond  to  this  method  of  campaigning,  his  name  is 
turned  oyer  to  the  membership,  committee  and  he  is  given  a  personal  visit  and  a 
personal  invitation  to  become  a  member  of  the  organization.  The  advantage  of 
this  plants  in  the  fact  that  when  the  personal  visit  is  made,  the  prospect  is  un- 
able to  give  as  his  reason  for  not  joining  that  he  does  not  know  what  the  organi- 
zation is  doing  and  other  excuses  of  like  character. 

Some  cities  have  adopted  the  plan  of  having  associate  members.  Such  mem- 
berships are  made  lower  in  price  than  the  full  membership.  Usually  they  are 
without  voting  power.  Their  purpose  is  to  secure  the  co-operation  and  interest 
of  citizens  who  are  not  engaged  in  active  business  or  professions.  These  mem- 
berships secure  the  clerks  and  subordinate  officers  in  the  industrial  enterprises. 


20  City   Building 


In  many  cases,  a  woman's  auxilliary  is  formed  with  a  different  form  of 
membership,  carrying  a  smaller  assessment  for  dues.  The  purpose  of  this  is  to 
secure  the  active  working  interest  and  co-operation  of  the  public-spirited  women 
of  the  community  and  wherever  adopted  this  plan  has  brought  forth  splendid 
results  in  certain  departments  of  civic  work,  such  as  sanitation,  a  greater  num- 
ber and  better  equipped  parks  and  play-grounds,  increased  educational  facilities 
and  other  similar  departments  which  a  great  many  business  men  do  not  seem 
anxious  to  undertake. 

A  plan  for  increasing  the  commercial  organization  membership  on  a  com- 
mission basis  has  been  tried  out  in  some  cities  with  indifferent  success.  This 
plan  is  to  employ  a  solicitor  for  either  whole  time  or  part  time.  He  solicits 
members  at  the  regular  rate  and  receives  his  remuneration  from  commissions. 
This  plan  of  securing  new  members  has  been  tried  out  more  successfully  by 
state  organizations  than  by  city  organizations  and  yet  in  some  few  instances  it 
has  been  successful  in  the  cities. 

Perhaps  the  greatest  objection  to  this  plan  is  the  fact  that  in  most  citiets 
the  commercial  organization  has  not  yet  reached  the  point  where  it  is  considered 
from  a  strictly  business  standpoint  as  any  other  corporation  existing  in  the  city. 
Memberships  in  the  commercial  organization  are  still  considered  as  donations 
and  are  not  thought  of  being  necessary  adjuncts  of  a  man's  individual  business. 
This  opinion,  is,  of  course,  fast  disappearing  and  it  will  only  be  a  matter  of  a 
few  years  until  the  majority  of  citizens  in  the  average  city  will  realize  the  abso- 
lute business  necessity  for  the  commercial  organization  working  on  a  co-opera- 
tive basis  for  the  upbuilding  of  all  the  various  interests  and  departments  of 
civic  life. 

It  makes  little  difference  how  beautiful  a  city  may  be,  how  pleasant  a  place  it 
is  in  which  to  live,  how  advantageous  its  location  or  what  its  resources  may  be,  if 
its  beauty,  its  pleasantness,  its  advantages  and  its  resources  are  not  made 
known.  In  other  words  without  publicity  the  city  is  handicapped  in  its  growth. 
It  may  have  a  natural  growth,  as  practically  every  town  and  village  in  the  world 
has,  because  of  the  natural  increase  in  the  world's  population.  But  it  is  only 
through  publicity  that  the  percentage  of  natural  growth  can  be  increased.  The 
next  six  articles  will  deal  with  this  phase  of  the  city's  activities. 


Publicity  21 


CHAPTER  2 

PUBLICITY 


The  Value  of  and  How  to  Secure  Local  Publicity. 

Some  time  ago  an  editorial  appeared  in  the  Woman's  Home  Com- 
panion under  the  caption,  "What  if  All  Advertising  were  Eliminated." 
This  writing  expressed  such  a  unique  train  of  thought  that  an  extract  from 
it  is  used:  "Can  you  imagine  what  existence  would  be  like  if  all  ad- 
vertising were  eliminated?  It  would  mean  more  than  the  absence 
of  advertising  in  the  pages  of  periodicals  and  newspapers.  It  would  mean 
that  the  grocer  would  not  have  his  name  or  his  business  printed  over  his 
door  or  on  his  window.  The  drug  stores  would  not  display  the  globes  of 
colored  water.  The  minister  would  not  announce  the  topic  of  his  next 
sermon,  nor  the  mid-week  meeting,  from  the  pulpit.  There  wouldn't  even 
be  signposts  at  country  crossroads,  nor  on  the  street  corners  in  towns 
and  cities." 

It  is  absolutely  imperative  for  our  era  to  have  publicity.  It  is  one 
of  the  greatest  agencies  for  development  in  all  branches  of  our  economic 
structure.  Without  it,  it  would  take  years  for  the  inventor  to  introduce 
his  product,  no  matter  how  necessary  it  might  be.  Without  it,  we  would 
still  be  living  in  the  stone  age,  or  worse. 

If  publicity  is  essential  to  the  merchant  and  manufacturer,  why  is  it 
not  just  as  essential  for  the  city?  How  can  the  beauties,  the  delights,  the 
resources  and  advantages  of  the  city  be  made  known  without  publicity? 
It  needs  no  demonstration  that  the  cities  which  are  outstripping  their 
competitors  in  all  lines  of  growth  and  development  are  those  which  have 
awakened  to  the  vital  necessity  of  publicity. 

It  is  just  as  necessary  to  have  local  publicity  of  the  city's  good  points 
in  order  to  arouse  the  civic  pride  and  loyalty  of  the  home  people.  Its 
value  lies  in  the  birth  of  the  spirit  of  progress  which  reaches  its  culmina- 
tion in  the  active  co-operation  of  the  citizens  through  the  commercial  or- 
ganization for  the  development  of  all  phases  and  conditions  of  the  city's 
life  and  activity  and  attracting  the  attention  of  the  non-resident  through 
publicity  with  the  view  of  securing  him  as  a  fellow-citizen. 

The  first  and  foremost  medium  to  be  used  in  securing  local  publicity 
is  the  local  newspapers.  The  newspaper  is  dependent,  more  than  any  other 
business  in  the  community,  upon  the  success  or  failure  of  the  city.  For 
this  reason  alone  its  columns  are  open  to  the  commercial  organization  for 
the  propagation  of  all  matter  calculated  to  increase  the  interest  of  its 
readers  for  the  benefit  of  the  community. 

The  secretary  of  the  association  prepares  the  matter  which  is  to  be 
used  in  the  newspapers.  He  will  have  much  better  success  if  he  writes 
all  of  his  articles  just  as  they  should  appear  in  print.  The  newspapers 
appreciate  this  co-operation  and  many  a  time  during  the  rush  hours  mat- 
ter already  prepared  will  be  used,  whereas  it  would  be  left  out  if  some 
of  the  reporters  had  to  write  it. 

The  secretary  should  endeavor  to  have  something  in  the  papers  every 
day  on  the  subject  of  development.  If  nothing  can  be  secured  for  some 
particular  day  concerning  the  local  work,  a  story  of  what  some  other  city 


22  City   Building 


is  doing  will  be  found  effective  for  stirring  up  a  spirit  of  rivalry.  A  local 
application  can  always  be  made  of  such  stories.  All  of  the  doings  of  the 
commercial  organization  should  be  made  known  in  this  manner.  This 
will  have  the  effect  of  interesting  the  non-member  of  the  organization  and 
he  will  not  be  so  hard  to  secure  as  a  member  during  the  next  membership 
campaign. 

Interesting  stories  can  be  written  about  the  city,  what  the  city  ad- 
ministration is  doing  for  development,  what  the  merchants  are  doing  to 
get  better  goods  for  their  customers,  how  the  hotels,  restaurants  and  places 
of  amusement  are  increasing  their  facilities  for  the  better  accommodatioD 
of  their  patrons,  and,  in  fact,  the  activities  of  all  interests  for  the  gen- 
eral progress  of  the  city.  A  campaign  of  this  character  will  engender  civic 
pride  and  will  bring  the  citizens  to  the  point  where  they  believe  in  their 
city  and  its  future. 

The  commercial  organization  magazine  is  also  another  effective  means 
of  obtaining  local  publicity.  This  publication,  issued  periodically,  con- 
tains the  happenings  in  the  organization  and  the  announcements  of  forth- 
coming events.  It  is  rather  expensive,  but  the  cities  which  use  it  are 
agreed  that  it  is  worth  the  cost.  This  magazine  is  sent  to  the  members 
and  also  to  a  selected  list  of  prospective  members  to  interest  them  In 
the  work  of  the  organization. 

The  magazine  is  of  no  inconsiderable  value  in  securing  quicker  action 
on  matters  of  importance.  Information  concerning  some  proposed  work  is 
used  in  the  magazine  prior  to  the  meeting  of  the  organization  so  that 
when  the  meeting  is  held  the  members  are  conversant  with  the  matter 
and  can  arrive  at  a  decison  quickly.  Some  of  the  cities  which  use  the 
magazine  are  Houston,  Texas;  Augusta,  Ga.;  Erie,  Penn.;  Camden,  N.  J.; 
Worcester,  Mass.;  Dayton,  Ohio;  Nashville,  Tenn.;  Topeka,  Kan.;  Little 
Rock,  Ark.;  Manila,  P.  I.;  San  Juan,  P.  R.;  and  many  others. 

A  substitute  for  the  magazine  or  bulletin  is  a  periodic  letter  from 
the  secretary  to  the  members  giving  some  of  the  details  of  the  work  in 
hand. 

If  the  organization  is  equipped  with  an  outfit  for  taking  photographs 
of  development  work,  not  only  in  the  home  city,  but  in  other  places,  thia 
will  be  found  excellent  for  creating  interest  among  the  members.  Lan- 
tern slides  can  be  made  and  exhibited  at  the  regular  meetings  of  the 
organization  with  telling  effect. 


Publicity  23 


II 
The  Personal  Letter  Campaign  to  Prospective  Citizens 


The  advantage  of  the  personal  letter  campaign  is  that  It  goes  direct 
to  the  person  whom  it  is  desired  to  Interest  in  the  question  of  locating  in 
the  community.  Each  letter  is  a  projectile  which  goes  direct  to  its  mark. 
It  strikes  the  bulls-eye  every  time  and  the  impression  that  it  makes  is 
only  dependent  upon  the  power  behind  it  and  the  material  of  which  it  is 
composed. 

It  is  not  an  easy  thing  to  write  a  good  letter,  but  the  man  who 
"talks"  on  paper  is  the  one  that  makes  an  impression.  The  opening 
paragraph  must  strike  with  sufficient  force  to  command  further  attention 
and  the  closing  paragraph  must  give  the  recipient  the  idea  that  if  he  does 
not  do  what  the  letter  directs  him  to  do,  he  will  miss  his  opportunity. 

One  way  to  direct  a  personal  letter  campaign  is  to  secure  a  mailing 
list  of  the  people  whom  it  is  desired  to  interest.  Trade  journals,  com- 
mercial reports,  buyers'  guides  and  mailing  list  concerns  will  furnish  all 
of  the  lists  needed  at  low  cost.  The  opening  letter  is  addressed  to  these 
people.  This  letter  points  out  some  of  the  chief  advantages  of  the  city 
and  asks  an  investigation  of  the  city's  claims.  A  return  postal  is  en- 
closed upon  which  the  prospect  may  ask  for  more  definite  information 
concerning  one  or  more  points. 

If  the  prospect  replies  to  this  letter,  his  name  is  transferred  from  the 
"general  prospect"  file  to  the  "first  reply"  file.  The  information  asked 
Is  given  in  as  attractive  a  style  as  the  letter  writer  can  produce.  If  the 
prospect  replies  to  this  letter,  his  card  is  again  transferred,  and  so  on 
until  he  is  either  located  or  discarded. 

If  the  prospect  does  not  reply  to  the  first  letter,  he  receives  the  second 
letter  of  the  follow-up,  giving  additional  reasons  for  his  location.  There- 
after he  receives  the  additional  letters  of  the  follow-up  until  he  is  located 
or  discarded.  The  same  procedure  obtains  with  the  prospect  who  replies 
to  the  first  letter  and  then  drops  his  correspondence.  He  is  subjected  to 
the  remaining  letters  of  the  follow-up. 

Too  much  stress  cannot  be  put  on  the  importance  of  a  thorough  fol- 
low-up system  being  adopted.  This  should  be  arranged  and  planned  be- 
fore the  first  letters  go  out,  so  that  at  regular  intervals  thereafter  the 
remaining  letters  and  publicity  matter  can  be  mailed 

A  subscription  to  some  one  or  more  of  the  good  press  clipping  bureaus 
will  furnish  live  lists  of  prospective  residents.  Practically  the  same 
course  of  procedure  is  used  as  outlined  above.  The  difference  is  in  the 
first  letter.  In  locating  industries,  the  press  clipping  bureaus  furnish 
Information  concerning  industries  which  have  suffered  fire  loss,  trade 
disturbances,  or  which  for  any  other  reason  make  known  their  desire  to 
change  their  location.  The  first  letter  should  convey  the  idea  that  the  sender 
knows  the  recipient  is  contemplating  a  change,  and  therefore  desires  to 
call  his  attention  to  the  advantages  of  the  writer's  city  as  the  best  place 
in  which  to  locate. 


24  City   Building 


Most  cities  are  derelict  in  the  follow-up.  One  Southern  commercial 
secretary,  to  test  out  this  point,  circulated  the  report  that  a  certain  con- 
cern wished  to  change  its  location.  He  asked  for  definite  information 
concerning  the  cities  which  should  reply.  He  received  more  than  one 
hundred  replies  from  commercial  organizations.  Three  of  them  followed 
up  the  first  letter.  Most  of  the  first  letters  were  mimeographed  and  failed 
to  give  any  reasons  for  the  location  of  that  particular  plant.  Only  one 
followed  up  the  matter  twice. 

A  part  of  the  follow-up  can  be  made  up  of  small  pamphlets,  or  book- 
lets. Every  pamphlet  should  be  printed  in  good  readable  type  and,  when 
desired,  should  be  illustrated  with  high-class  cuts.  The  best  pictures  are 
those  which  denote  action.  Pictures  are  oftentimes  more  convincing  than 
reading  matter.  They  speak  for  themselves  and  need  little  or  no  argu- 
ment. The  compiler  of  advertising  matter  should  be  always  governed  by 
truth  and  veracity.  The  facts,  figures  and  descriptions  which  make  up 
the  reading  matter  should  tell  nothing  but  the  truth. 

A  good  follow-up  is  in  use  in  Tampa,  Florida.  After  the  first  letter 
Is  sent  two  weeks  time  is  given  for  reply.  If  none  is  received,  the  second 
part  of  the  follow-up  is  mailed.  A  month  elapses  before  the  third  part  is 
sent.  The  fourth  of  the  series  is  mailed  at  the  expiration  of  the  third 
month.  The  a  the  prospect  hears  nothing  further  for  six  months,  and  he 
receives  the  final  part  of  the  follow-up  at  the  end  of  one  year.  He  is  then 
discarded. 

In  Mobile  the  follow-up  consists  of  ten  units.  No  mimeographed 
letters  are  used.  No  form  letters  are  mailed.  Each  letter  is  typewritten 
and  dictated  to  cover  the  wants  of  the  particular  prospect.  No  booklet  is 
sent  at  first.  Not  until  the  third  letter  is  the  first  booklet  sent.  There 
are  several  booklets  in  this  follow-up.  Every  week  another  unit  of  the 
follow-up  is  mailed  and  at  the  end  of  the  ten  weeks  the  prospect  is  dis- 
carded as  worthless.  A  card  index  shows  the  dates  of  the  outgoing  letters 
the  dates  of  the  replies  and  the  character  of  them.  When  a  reply  is  re- 
ceived the  card  is  transferred  from  the  geieral  file  to  the  special  file. 

An  important  part  of  the  personal  letter  campaign  and  other  general 
publicity  of  the  commercial  organization  of  the  city's  advantages  are  book- 
lets and  folders.  The  next  article  will  give  special  attention  to  this  form 
of  publicity. 


Publicity  25 


III 
Booklets  and  Folders 


Booklets  and  folders  are  standard  forms  of  municipal  publicity.  There  can 
hardly  be  found  a  city  which  is  carrying  on  anything  like  an  extensive  publicity 
campaign  but  what  these  forms  are  used.  Many  of  the  cities  issue  several  dif- 
ferent pamphlets  or  booklets,  all  of  which  are  used  in  their  follow-up  campaign 
for  prospective  residents. 

Many  of  these  booklets  are  very  handsome,  entailing  a  vast  amount 
of  expense  in  their  publication.  They  are  all  in  the  nature  of  pros- 
pectuses, compiled  so  as  to  give  the  reader  a  fair  idea  of  what  he  may  ex- 
pect to  find  in  the  community. 

Because  of  the  expense  attached  to  the  issuance  of  an  attractive 
booklet,  the  greatest  care  should  be  exercised  in  the  entire  preparation  of 
not  only  the  reading  matter,  but  also  a  careful  selection  of  the  pictures 
which  will  illustrate  it.  The  style  of  the  book  may  be  of  a  character  either 
to  attract  or  repel  the  reader  and  too  great  attention  cannot  be  paid  to  this 
phase  of  the  publication  of  a  booklet  in  order  to  make  it  as  fascinating  as 
possible. 

A  booklet  that  is  filled  from  cover  to  cover  with  nothing  but  statis- 
tics makes  exceedingly  dry  reading,  and  pictures  which  contain  no  sug- 
gestion of  action  in  them  are  hardly  worth  the  paper  upon  which  they  are 
printed.  The  subject  matter  of  the  booklet  should  be  written  in  a  style 
that  danotes  progress  and  which  will  not  give  the  impression  that  the 
same  is  an  excuse  for  something  better.  A  good  photographer  will  secure 
pictures  which  will  show  the  virility  of  the  community  and  will  not  con- 
vey the  idea  that  the  city  is  a  village  in  the  vale  of  sleepy  hollow. 

Every  detail  of  the  booklet  should  be  carefully  worked  out  before  any 
of  the  copy  is  submitted  to  the  printer.  The  beauties  of  the  city,  its 
parks,  play-grounds,  its  boulevards,  its  advantages,  its  educational  insti- 
tutions, its  churches,  and  its  resources  should  be  all  carefully  thought  out 
and  outlined  before  any  of  the  subject  matter  is  written. 

The  purpose  of  the  booklet  should  be  considered.  If  the  booklet  is 
to  be  used  to  locate  a  particular  class  of  industries,  it  will  be  written  in 
a  different  manner  than  if  used  to  interest  the  retired  capitalist,  or  the 
man  who  wishes  to  educate  his  children  in  the  schools  of  the  city. 

In  Mobile,  Alabama,  this  point  is  carefully  worked  out  in  the  follow- 
ing manner:  Certain  booklets  are  sent  to  people  in  special  lines  of  in- 
dustry. These  booklets  are  called  "briefs."  They  are  typewritten  in  legal 
form.  They  set  forth  the  advantages  for  a  particular  factory.  For  in- 
stance, in  dealing  with  a  cigar  factory,  the  raw  material  question  is  thor- 
oughly discussed,  showing  that  tobacco  may  be  brought  to  iMobile  from 
Cuba,  Florida,  Georgia,  or  from  Mobile  and  surrounding  counties.  The 
freight  rate  on  this  tobacco  from  Cuba  or  the  States  is  given  in  actual  fig- 
ures per  hundred  pounds.  Where  the  tobacco  is  imported,  the  amount  of 
duty  is  also  contained.  Humidity  is  a  question  which  naturally  arises  in 
the  minds  of  the  prospective  industrial  cigar  manufacturer.  Therefore, 
the  humidity  of  Mobile  is  compared  with  that  of  Tampa  and  Key  West. 


26  City  Building 


The  question  of  market  is  also  handled.  The  freight  rates  to  the  probable 
markets  and  the  express  rates  also  will  give  the  cents  per  hundred 
pounds.  The  labor  question  is  discussed.  The  whole  makes  a  brief  on 
the  subject  why  Mobile  is  a  good  place  in  which  to  locate  a  cigar  factory. 

Successful  booklets  are  used  to  cover  other  phases  of  the  city's  activ- 
ities. There  are  three  special  booklets.  One  covers  Mobile  as  a  city  of 
residents,  the  second  deals  with  farming  lands,  and  the  third  treats  only 
of  the  manufacturer's  situation.  In  the  factory  booklet  nothing  but  data 
interesting  to  the  manufacturer  is  used.  Instead  of  giving  half-tones  of  the 
beautiful  drives  about  the  city,  maps  showing  the  railroads  entering  the 
city,  the  steamship  lines  outward,  and  the  river  system  are  used.  Other 
maps  are  printed  showing  the  cotton  producing  states  and  the  amount  they 
produce,  together  with  Mobile's  location  with  reference  thereto.  The  book- 
let also  deals  with  those  questions  which  naturally  arise  in  the  manufac- 
turer's mind,  as  proximity  and  abundance  of  raw  material,  market  and 
competition,  taxes,  licenses,  fuel,  power,  trade  conditions,  and  other  mat- 
ters which  pertain  to  the  cost  of  production.  Freight  rates  are  compared 
to  some  other  manufacturing  points. 

In  writing  the  booklet  care  should  be  taken  not  to  make  statements 
in  the  superlative  degree  unless  they  can  be  backed  up.  'More  than  200 
commercial  organizations  in  this  country  issuing  booklets  claim  for  their 
city  the  purest  water  in  the  United  States.  This  is  simply  cited  as  an  ex- 
ample. Every  city  has  something  over  every  other  city.  Find  that  one 
thing,  or  several  things,  and  use  them  as  a  foundation  upon  which  to 
build  the  booklet. 

The  commercial  organization  magazines  referred  to  in  a  former  chap- 
ter makes  a  splendid  booklet  to  mail  to  persons  interested  in  the  city, 
because  it  shows  the  activities  of  the  commercial  organization  and  conse- 
quently of  the  city. 

Besides  the  expensive,  highly  illustrated,  beautifully  printed  booklet, 
small  pamphlets  or  folders  will  be  found  very  useful  for  distribution.  In 
these,  tabulated  statistics  can  be  used  to  advantage,  because  This  method 
is  the  most  concise  for  stating  such  facts. 

Above  all,  in  the  issuing  of  publicity  matter  of  this  character,  the  pur- 
pose of  making  the  booklet  or  folder  truly  representative  of  the  commu- 
nity should  be  strictly  observed. 


Publicity  27 


IV 

Special  Publicity — Post  Card    Day,   Display  Advertising,   Memphis 

Challenge,  Contests  for  Slogans,  Etc. 


The  field  of  special  publicity  for  a  city  presents  an  almost  unlimited 
opportunity  for  the  exercise  of  the  genius  of  not  only  one,  but  all  citizens?. 
There  is  no  end  to  the  different  ways  in  which  this  kind  of  publicity  can  be 
given.     Capacity  for  ingenuous  creations  alone  fixes  the  limit. 

Display  advertising  is  one  of  the  more  common  forms  of  special 
publicity.  Shortly  after  the  commission  form  of  government  was  adoptej 
in  Des  Moines,  Iowa,  a  strenuous  campaign  was  begun  in  a  number  of  pe- 
riodicals. That  campaign  is  still  in  use  by  Des  Moines.  The  result  has 
been  thousands  of  inquiries  which  led  to  a  number  of  locations.  Houston, 
Texas,  adopted  such  a  campaign  with  the  result  that  the  office  force  of  the 
Chamber  of  Commerce  had  to  be  increased  by  nine  people  in  order  to 
take  care  of  the  tremendous  number  of  inquiries.  Within  one  year  sixty- 
five  industrial  plants  were  located  as  a  direct  result  of  this  campaign. 
Buffalo,  N.  Y.,  has  also  tried  out  this  method  with  success.  Many  other 
cities  are  now  making  constant  use  of  it. 

Post  Card  Day  has  grown  in  popularity  until  it  has  become  an  an- 
nual custom  in  a  number  of  places.  The  plan  in  brief  is  to  send  out  thou- 
sands of  post  cards  picturing  some  of  the  beauties,  advantages  or  resources 
of  a  city  by  its  citizens  on  some  one  certain  day.  A  large  mailing  list  is 
usually  compiled  of  people  or  concerns  to  whom  these  post  cards  are  sent. 
The  citizens  agree  to  purchase  and  send  out  a  certain  number  of  these  cards 
each.  To  each  is  given  a  sufficient  number  of  names  from  the  mailing  list 
to  cover  the  number  which  he  agrees  to  send  out.  In  some  places  the  citi- 
zens prepare  their  own  mailing  list,  sending  the  cards  to  their  own 
friends  and  acquaintances. 

In  a  recent  advertising  campaign  conducted  in  Memphis,  Tenn.,  a 
rather  unique  method  to  secure  publicity  for  the  city  was  tried  out.  A 
number  of  telegrams  were  sent  to  other  cities  issuing  therein  a  challenge 
to  debate  the  question  as  to  which  city  was  the  better  place  in  which  to 
live,  considered  from  all  standpoints.  The  very  uniqueness  of  this  chal- 
lenge appealed  to  the  newspapers  of  the  other  cities  and  was  printed  in 
their  columns.  Many  of  the  newspapers  went  further  and  printed  columns 
of  matter  concerning  Memphis  and  her  claims  of  superiority.  The  result 
of  the  campaign  was  tha  securing  of  thousands  of  columns  of  free  adver- 
tising space. 

A  number  of  cities  have  conducted  contests  for  slogans  or  city  trade- 
marks with  the  result  of  securing  a  great  deal  of  country-wide  advertising 
practically  free.  A  prize  is  usually  offered  for  the  person  who  submits  t>ha 
most  appropriate  slogan  or  trade-mark  design.  This  information  is  sent 
out  to  the  newspapers  of  the  country,  who  seldom  fail  to  print  the  notice 
of  the  contest  and  frequently  they  urge  their  readers  to  enter  the  contest. 
The  entrants  naturally  desire  further  information  concerning  the  city** 
resources  and  advantages  .  They    seek    this    information   from   various 


28  City   Building 


sources  and  give  it  more  or  less  publicity.  The  city  not  only  receives  thi* 
publicity,  but  also  gets  the  benefit  of  the  great  many  suggestions  for  slo- 
gans or  trade  marks  to  be  used  in  other  advertising  campaigns. 

Many  cities  receive  special  publicity  through  their  memberships  in 
their  State  Development  Associations  or  Chambers  of  Commerce.  The 
Texas  Commercial  Secretaries  Association  is  one  of  the  best  examples  of 
the  methods  used  by  such  organizations.  This  association  is  formed  by 
commercial  organizations  and  individuals  for  the  purpose  of  develop- 
ment of  the  state's  resources  and  also  to  bring  those  advantages  to  the 
attention  of  the  non-resident.  Other  organizations  of  like  character  are 
fast  being  organized  in  nearly  all  of  the  states 

Expositions,  fairs,  aviation  meets  and  such  celebrations  are  often  used 
effectively  for  advertising  purposes.  A  number  of  years  ago,  the  city  of 
Louisville  received  a  remarkable  amount  of  advertising  through  the  great 
Kentucky  Home-Coming  which  that  city  conducted.  Lists  of  Kentuckians 
who  had  left  the  state  and  were  living  in  other  states  or  countries  were 
made  up  and  the  old-time  Kentucky  invitation  was  extended  to  them  to 
return  for  the  week  of  the  Home-Coming.  Not  only  did  thousands  upon 
thousands  respond,  but  those  who  were  unable  to  come  were  reminded  of 
the  fact  that  they  were  still  Kentuckians  and  there  were  few  whose  heart- 
beats were  not  quickened  as  a  result  of  the  invitation. 

Pine  Bluff,  Arkansas,  upon  the  completion  of  the  installation  of  its 
system  of  ornamental  street  lighting,  arranged  an  elaborate  program  of 
dedication,  which  not  only  served  to  bring  in  a  great  crowd  of  people 
for  the  day,  but  also  advertised  throughout  the  surrounding  country  the 
fact  that  the  city  had  progressed  to  the  extent  that  they  were  able  to  in- 
stall this  form  of  street  lighting. 

On  the  fiftieth  anniversary  of  the  entry  of  the  Mormons  into  Salt 
Lake  Valley  a  great  celebration  was  held  in  Salt  Lake  City.  A  monster 
historical  pageant  was  arranged  and  other  exercises  and  ceremonies  were 
conducted,  which  attracted  great  throngs  of  people  from  the  whole  inter- 
mountain  region. 

What  child  in  this  country  has  not  heard  of  New  Orleans  on  account 
of  its  Mardi  Gras?  How  many  people  but  what  remember  something 
about  the  World's  Fairs  held  in  Chicago  and  St.  Louis?  All  affairs  of  this 
character  have  an  appreciable  value  as  publicity  mediums  for  the  cities 
In  which  they  are  held. 


Publicity  29 


V 
The  News  Bureau — How  to  Organize  and  Conduct  It 


One  of  the  most  efficient  means  of  securing  publicity  for  a  city  is 
through  the  medium  of  the  news  bureau,  which  sends  out  news  matter 
and  feature  stories  concerning  different  phases  of  the  city's  life  and 
activities  to  the  newspapers  and  journals  throughout  the  country.  If 
care  and  attention  is  paid  to  the  proper  preparation  of  such  articles,  the 
number  of  newspapers  and  periodicals  which  will  use  them  will  be  sur- 
prising. 

No  matter  should  be  sent  out  which  bears  the  ear-marks  too  plainly 
of  advertising.  Such  an  article  will  defeat  once  and  for  all  the  purpose  of 
the  bureau.  It  will  turn  the  publications  against  the  city  and  everything 
which  follows  from  the  news  bureau  will  be  carefully  inspected  before  use, 
if  it  is  inspected  at  all. 

The  expenses  of  organizing  and  conducting  a  news  bureau  are  com- 
paratively small.  The  item  of  postage  is  the  main  expense.  Of  course, 
where  a  large  bureau  is  conducted,  additional  salaries  are  necessary.  But 
any  city  can  conduct  a  small  bureau  without  a  great  deal  of  expense. 

The  large  news  bureau  is  organized  as  a  department  of  the  city's 
commercial  organization.  A  publicity  man,  preferably  a  newspaper  man, 
because  he  knows  the  value  of  news  matter,  is  put  in  charge  of  this  work. 
He  secures  a  copy  of  the  latest  newspaper  annual  giving  the  names  and 
locations  and  other  data  concerning  the  newspapers  over  the  country. 
He  also  secures  a  list  of  the  periodicals  which  would  be  likely  to  use  any 
of  the  matter  to  be  prepared.  These  two  lists  give  him  the  mailing  list 
for  all  of  the  matter  which  will  be  sent  out. 

The  attention  of  the  bureau  manager  is  next  given  to  the  selection 
of  material  for  articles.  He  will  search  the  current  local  events  for  live 
news  of  interest  to  other  cities.  It  depends  upon  the  character  of  the 
news  of  this  class  whether  or  not  it  will  be  necessary  to  query  newspapers 
by  wire.  If  the  story  can  be  sent  by  mail,  no  query  is  necessary.  The 
story  is  prepared  in  as  many  duplicates  as  necessary  to  cover  the  list  of 
papers  likely  to  use  it.  It  is  then  mailed  to  the  papers.  If  the  news  will 
not  keep  long  enough  to  be  mailed,  then  the  query  by  wire  Is  necessary. 
This  query  will  be  replied  to  by  the  newspapers  which  desire  to  order  a 
certain  number  of  words  of  the  story. 

A  prolific  field  for  the  news  bureau  is  in  the  preparation  of  feature 
stories  concerning  special  advantages  which  the  city  possesses  to  the  ex- 
clusion of  other  cities.  Feature  stories  about  the  Mardi  Gras  in  New  Or- 
leans, the  advantages  of  Detroit  as  a  summer  resort,  the  beauties  of  the 
East  Coast  of  Florida  or  California  as  a  winter  resort,  all  make  good  and 
interesting  reading  to  the  average  reader. 

Industrial  stories  are  often  found  acceptable.  Many  cities  lead  in  the 
production  of  certain  commodities.  It  is  always  interesting  to  read  how 
these  articles  are  produced,  how  the  products  are  handled  and  the  size  of 
the  production.  Agricultural  articles  of  the  unique  order  will  be  used 
extensively  by  a  great  many  publications. 


30  City   Building 


In  fact,  any  and  everything  of  good  repute  for  which  the  city  or 
vicinity  is  noted  can  be  made  the  subject  of  interesting  articles  wihich 
will  be  used  gladly.  Unusual  instances  of  development  work  of  every 
character  will  find  ready  publication.  Whether  or  not  any  of  these  ar- 
ticles will  be  used  depends  largely  upon  the  manner  in  which  they  are 
handled  and  the  style  in  which  they  are  written.  A  trained  newspaper 
man  will  be  able  to  prepare  these  articles  in  an  acceptable  style  and 
manner. 

Attention  should  also  be  paid  to  the  timeliness  of  an  article  of  the 
feature  character.  It  would  do  Detroit  little  good  to  circulate  a  story 
about  the  beautiful  places  thereabouts  and  the  delightful  surroundings 
of  the  place  as  a  summer  resort,  if  that  story  was  circulated  during  the 
winter  time.  There  would  be  few  publications  which  would  use  the  ar- 
ticle. Stories  about  the  Mardi  Gras  would  do  New  Orleans  more  good  if 
circulated  a  short  time  before  the  holding  of  the  carnival  than  after  it 
was  over.  People  do  not  want  to  read  of  the  warm  climate  of  Florida 
when  they  are,  perhaps,  sweltering  under  the  heat  of  their  own  summer. 

All  of  these  articles  should  be  sent  out  at  the  time  when  they  will 
do  the  most  good  and  when  they  will  be  most  likely  to  be  printed.  Some 
cities  conducting  their  news  bureaus  send  out  a  periodic  letter,  usually 
about  once  a  week.  There  are  not  many  newspapers  which  will  continue 
to  use  this  matter.  After  a  time  the  envelope  becomes  known  and  instead 
of  being  opened,  it  is  consigned  at  once  to  the  waste  basket.  Timeliness 
is  one  of  the  large  elements  of  success  in  securing  publication  of  such 
publicity  matter. 

The  small  news  bureau  is  conducted  on  the  same  general  principles 
as  outlined  above.  Instead  of  having  a  special  publicity  manager,  the 
work  devolves  upon  the  other  officers  of  the  commercial  organization, 
usually  the  secretary,  who,  as  he  finds  the  time  or  the  spirit  moves  him, 
prepares  and  circulates  articles  of  the  same  character  as  described  above. 

The  Texas  Commercial  Secretaries  Association  furnish  a  plate  service 
free  of  cost  to  the  state  newspapers.  The  subject  matter  of  this  service 
contains  suggestions  for  better  city  building  and  other  development  work. 
This  association  also  circulates  free  plate  to  other  papers  concerning  op- 
portunities and  features  about  the  state  of  Texas.  This  matter  is  largely 
used  by  the  papers  over  the  country. 


Publicity  31 


VI 
How  to  Finance  the  Publicity  Fund 


There  are  few  cities  in  this  country  which  have  adopted  systematic 
publicity  campaigns.  The  chief  reason  of  such  a  lack  of  system  in  mu- 
nicipal advertising  is  because  of  the  insufficiency  of  funds  with  which  to 
finance  such  efforts.  The  absence  of  funds  with  which  to  conduct  a  thor- 
ough campaign  of  publicity  makes  it  necessary  for  the  commercial  organ- 
ization to  depend  upon  its  dues  from  members  to  do  as  much  as  possible, 
after  paying  salaries,  rents  and  all  the  other  fixed  charges.  This,  of 
course,  is  unsatisfactory  and  the  need  of  proper  publicity  financing  is 
found  on  every  hand. 

One  of  the  important  points  about  the  raising  of  finances  for  any  of 
the  public  work  to  be  done  by  the  commercial  organization  is  that  every 
citizen  in  the  community  should  be  expected  to  bear  his  share  of  the  bur- 
den. All  campaigns  for  the  raising  of  such  funds  should  be  inaugurated 
with  this  idea  in  view.  They  should  be  planned  to  cover  all  classes  and 
conditions  of  citizens,  from  the  highest  to  the  lowest  and  the  richest  to 
the  poorest. 

It  is  an  undeniable  fact  that  the  working  interest  of  a  person  is  se- 
cured when  his  financial  interest  is  enlisted  in  any  public  work.  When  a 
person  makes  a  subscription  he  will  be  then  interested  to  know  how  his 
money  is  being  spent.  He  feels  that  he  is  a  part  of  the  whole  and  that 
he  has  a  right  to  make  his  voice  known  in  the  work  that  is  being  done. 

One  of  the  best  ways  in  which  to  finance  not  only  the  publicity  fund, 
but  also  all  of  the  work  of  the  commercial  organization,  is  that  of  obtain- 
ing annual  subscriptions  to  cover  a  certain  period  of  years.  The  money 
is  raised  by  the  use  of  the  short  term  campaign. 

The  various  committees  are  appointed  to  secure  the  workers,  or  so- 
licitors, to  have  charge  of  all  arrangements  for  the  daily  lunch  and  meet- 
ings, to  condict  the  publicity  necessary  to  make  the  campaign  successful 
and  to  make  up  the  list  of  persons  to  be  solicited.  This  listing  committee 
in  the  financial  campaign  also  makes  an  assessment  of  the  probable  amount 
which  the  one  to  be  solicited  should  give.  This  gives  the  solicitor  an  idea 
of  how  much  to  ask  for. 

In  this  campaign  the  listing  committee  takes  the  names  of  every 
available  prospect  in  the  community,  rates  his  ability  to  pay  and  the  so- 
licitor is  instructed  to  receive  his  subscription  accordingly. 

One  very  progressive  city  of  thirty  thousand  population  has  recently 
created  a  fund  of  $70,000  for  the  general  use  of  its  commercial  organi- 
zation. This  was  taken  in  various  amounts,  and  for  each  unit  of  subscrip- 
tion a  share  of  non-dividend  stock  was  issued.  The  amount  is  paid  in  at 
the  rate  of  twenty  per  cent  a  year,  and  the  total  may  be  expended  at  the 
same  rate  by  the  management. 

The  advantage  of  the  plan  of  securing  subscriptions  to  cover  a  three 
or  five  year  period  is  that  it  gives  permanency  to  the  commercial  organi- 
zation  for  that  definite  period  of  time.     If   within    the    time    limit    the    or- 


32  City   Building 


ganization  makes  good,  the  subscriptions  will  be  renewed,  probably  in- 
creased. If  it  does  not  produce  reseults,  then  it  will  deserve  the  fate  of 
all  failures. 

Suppose  every  citizen  in  any  community  contributed  the  small  suit 
of  ten  cents  each  month  to  the  work  of  exploiting  the  advantages  of  the 
place.  A  city  like  Cincinnati,  with  364,463  inhabitants  in  1910,  would 
have  an  advertising  fund  of  $36,446  a  month,  or  $487,355  for  the  year. 
Other  cities  would  have  funds  in  like  proportion.  This,  however,  is  not 
practical.  A  very  good  substitute  is  the  annual  dollar  campaign.  Again 
the  organization  for  the  short  term  campaign  is  used  and  the  solicitors 
ask  every  citizen  for  one  dollar,  no  more  and  no  less. 

A  movement  has  been  inaugurated  in  some  communities  which  bid3 
fair  to  become  widespread  throughout  the  country.  It  is  the  levying  of 
a  special  tax  in  the  regular  tax  levy  to  raise  funds  for  the  carrying  on  of 
the  publicity  work  of  the  commercial  organization.  This  plan  is  the 
nearest  approach  found  to  the  equalization  of  the  burden  of  supporting 
this  kind  of  work. 

At  the  annual  convention  of  the  Southern  Commercial  Secretaries 
Association  held  in  Memphis,  Tenn.,  in  1911,  the  following  resolution  was 
adopted  on  this  point: 

"Recognizing  that  less  than  one  per  cent  of  the  inhabitants  of  the 
average  American  city  and  town  is  assisting  in  financing  the  commercial 
organization,  we  favor  a  uniform  state  law  allowing  cities  and  communi- 
ties to  levy  a  tax,  the  returns  from  which  shall  be  used  in  assisting  the 
commercial  organization  in  a  financial  way." 

Some  city  governments  today  make  appropriations  to  cover  a  por- 
tion of  this  expense,  but  the  general  objection  to  this  method  is  that  it 
places  the  commercial  organization  in  a  possible  position  where  they  can 
not  exercise  the  same  freedom  of  thought  and  action  with  reference  to 
the  doings  of  the  municipal  administration.  The  passage  of  such  a  law 
as  suggested  above,  however,  would  eliminate  this  objection. 

The  work  of  the  commercial  organization  is  vital  for  growth  and 
progress  in  the  community  and  therefore  its  work  should  be  made,  as 
far  as  possible,  a  public  charge,  the  expenses  of  which  should  largely  be 
borne  by  the  public  purse. 


Location  of  Industries  33 


CHAPTER  3 

LOCATION  OF  INDUSTRIES 


How  to  Interest  Prospective  Industries 

Never  has  there  been  such  keen  competition  among  cities  for  the 
location  of  industries  as  there  is  today.  Because  of  this  it  is  vitally 
necessary  for  success  in  this  Important  branch  of  city  building  to  have 
a  thorough  system. 

The  first  step  in  the  process  is  to  take  an  inventory  of  stock.  Find 
out  what  factories  your  city  has.  This  will  assist  in  showing  what  others 
you  need.  What  raw  materials  have  you  that  can  be  manufactured  eco- 
nomically? Industries  using  these  will  be  easier  to  persuade  to  locate  with 
you  than  others.  What  are  the  community's  chief  sources  of  revenue? 
Kindred  industries  will  likely  thrive.  Omaha  specializes  on  industries 
which  are  closely  allied  to  agriculture  and  has  averaged  one  location  a 
week  during  the  past  two  years. 

A  complilation  of  accurate  and  reliable  information  should  be  made 
so  that  at  a  moment's  notice  you  can  give  a  manufacturer  complete  data 
on  wages  of  labor,  freight  rates,  both  rail  and  water  in  and  out  of  your  city, 
water  rates,  power  charges,  rentals  for  workmen,  cost  of  fuel,  cost  of  raw 
materials  in  and  out  and  other  information  which  will  be  sugested  to  you 
in  compiling  the  above.  You  must  be  able  to  show  the  manufacturer  that 
your  city  is  a  better  location  on  a  dollar  and  cent  basis  than  his  present  one. 
The  geographical  location  of  your  city  with  reference  to  market  is  also  a 
strong  point. 

After  the  inventory  is  taken  and  the  compilation  of  information  in 
made,  the  next  step  is  to  get  in  touch  with  prospects.  It  is  far  better  to 
decide  on  some  one  line  at  which  to  fire  your  broadside  than  to  scatter-gun 
over  the  entire  industrial  field. 

Every  railroad  operating  in  your  city  maintains  an  industrial  depart- 
ment. File  your  statistical  information  with  them  and  don't  forget  to 
impress  upon  them  your  strongest  arguments  why  the  proposed  industry 
will  succeed  in  your  community.  If  no  results  come  in  a  reasonable  time, 
go  after  them  again  and  keep  on  until  the  railroads  know  you  mean 
business. 

There  are  a  number  of  periodicals  which  will  gladly  publish  an  article 
on  your  needs  industrially  and  your  arguments  in  favor  of  the  location. 

The  personal  letter  campaign  is  one  of  the  very  best  methods  of 
getting  in  touch  with  prospects.  Subscribe  to  some  of  the  clipping  bureaus 
and  write  to  manufacturers  who  have  suffered  fire  loss  or  for  any  reason 
are  considering  a  change  in  location.  Use  a  good  mailing  list  for  address- 
ing other  manufacturers.  Don't  use  circulars.  Make  every  letter  ring  with 
personality.  This  is  the  way  to  get  back  your  dividend  on  that  two  cent 
stamp.  You  can  get  your  mailing  list  from  Dunn  or  Bradstreet's  complete 
reports,  from  companies  who  make  a  business  of  compiling  mailing  lista 
whose  advertisements  you  can  find  in  most  any  of  the  large  magazines,  or 
from  trade  journal  annuals  and  buyer's  guides. 


34  City   Building 


Another  effective  method  is  to  have  a  committee  from  your  city  pay 
personal  visits  to  prospects.  Or  suppose  you  send  the  secretary  of  your 
commercial  organization.  Suppose  your  city  needs  a  shoe  factory.  Send 
your  secretary  to  the  congested  shoe-manufacturing  centers.  He  will 
become  acquainted  with  the  owners  of  plants.  He  will  discover  in  some 
one  or  two  a  young  junior  partner.  He  finds  out  that  this  man  is  worth 
several  thousand  dollars.  The  secretary  gets  acquainted  with  him  and 
gradually  tells  him  of  the  opportunity  for  a  successful  plant  in  your  city. 
The  secretary  gives  him  all  the  data  and  arguments  in  favor  of  locating 
in  your  city.  He  follows  this  up  by  an  invitation  to  visit  your  city  to 
meet  your  business  men  and  to  personally  investigate  the  field.  In  nine 
times  out  of  ten  the  plan  will  land  an  industry. 

Display  advertising  in  periodicals  with  a  country  wide  circulation  is 
a  most  excellent  method  also  of  getting  in  touch  with  prospective  indus- 
tries. This  is,  perhaps,  the  most  costly  method,  but  it  is  worth  all  it  costs. 
A  number  of  these  popular  magazines,  and  also  many  of  the  great  daily 
newspapers,  are  beginning  to  make  a  specialty  of  this  class  of  advertising, 
giving  special  attention,  position,  and  rates  for  such  space. 

Advertising  space  in  the  trade  journals  will  also  be  found  a  good  in- 
vestment for  seeking  particular  lines  of  industries. 

When  approaching  old-established  industries  of  large  output,  cover- 
ing a  great  territory  in  the  distribution  of  their  products,  it  is  well  to  put 
the  "soft  pedal"  on  a  request  to  remove  their  entire  plant.  It  is  better 
to  begin  with  the  suggestion  of  the  establishment  of  a  branch  plant  which 
will  be  able  to  handle  more  economically  the  distribution  of  products  in 
your  immediate  market.  Then  gradually  as  the  campaign  for  this  industry 
grows  warmer  and  the  manufacturer  sees  the  possibilities  of  future  growth 
at  your  location  you  can  then  go  after  his  whole  plant,  whereas  if' you 
started  out  on  this  line  you  would  do  nothing  more  than  scare  him  off. 

As  far  as  it  is  possible,  you  should  "put  your  house  in  order"  before 
inviting  industries  to  come  to  you.  You  may  be  extremely  anxious  for  the 
benefits  coming  from  the  constant  stream  of  the  industrial  payroll,  but 
if  your  transportation  facilities  are  poor  and  freight  rates  discriminatory, 
you  have  a  difficult  undertaking.  Your  fuel  rates,  power  rates,  rentals, 
water  rates  must  be  right.  In  general  your  city  must  offer  a  more  advan- 
tageous and  economical  location  than  the  present  location  of  the  prospect. 
A  tremendous  advantage  is  a  clean,  pleasant  place  in  which  to  live. 

These  problems  will  all  be  treated  specifically  from  chapter  to  chapter  in 
this  book. 


Location  of  Industries  35 


II 

How  to  Judge  a  Good  Industry  from  a  Bad  One 


There  are  a  host  of  bonus-hunting  industries  moving  constantly  from  city 
to  city,  staying  just  long  enough  in  one  place  to  secure  the  gift,  and  then,  "like 
the  arabs  of  the  desert,  they  fold  their  tents  and  silently  steal  away"  to  some 
other  city  which  is  holding  out  a  tempting  offer  of  gold  and  precious  gifts. 
Some  cities  have  been  ruined  by  these  parasites,  while  there  are  a  very  few 
that  have  secured  some  good  industries  by  out  and  out  gifts  of  money,  land  and 
so  forth. 

To  avoid  the  former  condition,  every  city  should  put  to  the  supreme 
test  every  industry  which  proposes  to  locate  upon  condition  that  induce- 
ments other  than  the  natural  ones  of  the  vicinity  are  given  them.  To 
apply  this  test  is  a  serious  problem,  but  the  following  formula  will  do 
much  to  solve  the  riddle. 

H.  F.  J.  Porter,  M.  E.,  an  authority  on  shop  organization  and  man- 
agement, in  a  lecture  on  "The  Essentials  of  a  Successful  Enterprise,"  be- 
fore the  Alexander  Hamilton  Institute  of  New  York  City,  gives  twelve 
essentials  which  he  asserts  an  industry  must  possess  for  it  to  be  financially 
successful.     They  are: 

1.  A  useful  article  to  manufacture  for  sale. 

2.  A  properly  organized  company. 

3.  'Sufficient  capital  to  exploit  and  carry  out  the  project. 

4.  A  well-defined  business  policy. 

5.  An  honest,  tactful  and  capable  business  manager. 

6.  A  suitable  location  for  the  factory. 

7.  A  well-designed  plant. 

8.  A  loyal  and  skilled  organization. 

9.  Perfection  in  design  of  the  product. 

10.  Perfection  in  manufacture,  both  in  material  and  workmanship. 

11.  An  efficient  selling  force. 

12.  A  comprehensive  system  of  accounting. 

Suppose  your  city  receives  a  proposition  from  an  industry,  then: 

1.  Secure  specific  information  concerning  the  products  to  be  man- 
ufactured.    It  may  be  that  your  locality  is  not  suited  to  such  an  industry. 

2.  Get  their  ideas  of  a  properly  organized  company.  The  corpora- 
tion form  is  better  than  the  old  partnership  or  firm,  because  it  perpetu- 
ates the  life  of  the  business,  extends  the  power  of  business  expansion, 
makes  easy  the  addition  of  new  capital,  and  centralizes  control. 

3.  What  amount  of  capital  will  they  invest  in  the  new  enterprise? 
It  is  easier  and  better  to  secure  capital  at  the  outset  than  after  a  con- 
cern has  existed  for  a  period  in  a  hampered  condition  because  of  its  lack. 
Be  sure  that  sufficient  capital  is  secured  to  put  the  business  upon  a  firm 
basis  at  the  very  beginning. 

4.  You  may  discover  the  bonus-hunter  wben  you  ask  the  question 
concerning  their  proposed  business  policy.  The  board  of  directors  of  the 
new  concern  must  be  sufficiently  intelligent  to  put  into  effect  a  thorough 
business  administration. 


36  City   Building 


5.  Who  is  to  be  the  business  manager?  Is  he  a  broken-down  in- 
ventor with  a  hobby  which  he  wants  to  manufacture,  or  is  he  an  active, 
wide-awake  factory  man?  What  is  his  record  for  results?  Is  he  a  spe- 
cialist in  this  particular  business? 

6.  Why  does  this  industry  want  to  come  to  your  city?  Is  it  be- 
cause of  the  artificial  or  natural  inducements?  Are  they  influenced  more 
by  the  local  stock  subscription  or  are  they  really  thinking  of  the  supply 
of  raw  material — the  proximity  of  their  market — the  transportation  fa- 
cilities and  rates?  Your  compilation  of  statistical  information  referred  to 
in  the  preceding  article  will  come  in  good  play  in  convincing  the  good  industry 
that  your  locality  is  the  proper  place  for  it. 

7.  What  are  their  ideas  of  a  well-designed  plant?  Many  industries 
which  have  gone  into  the  hands  of  a  receiver  could  have  succeeded  if 
sufficient  attention  had  been  paid  to  this  point  in  shop  construction.  Does 
the  proposed  plan  economize  space,  provide  for  future  growth,  and  allow 
the  raw  material  to  flow  into  one  entrance,  through  the  various  processes 
of  manufacture  and  out  to  the  shipping  room  in  a  continuous  stream? 

8.  The  efficient  factory  force  is  one  banded  together  with  mutual 
interest  for  the  success  of  the  undertaking.  It  is  team-work.  No  chain 
is  stronger  than  its  weakest  link  and  strife  and  discord  are  very  weak 
links  in  the  industrial  chain.  The  employer  must  treat  his  workers  as 
human  beings.  He  must  look  after  their  physical,  moral  and  mental  wel- 
fare. One  of  the  surest  ways  to  avoid  strikes  and  similar  disturbances 
is  to  pay  attention  to  the  personal  side  of  the  employee's  labors.  This 
method  of  dealing  with  him  makes  him  strive  for  greater  skill  in  his  work. 

9.  Constant  experimenting  will  evolve  many  improvements  in  the 
design  of  a  factory  product.  Competition  has  become  so  keen  that  the 
product  of  five  years  ago  is  scarcely  seen  today  on  the  market  in  the 
form  or  design  of  the  former  period. 

10.  As  in  section  nine,  so  in  this  section,  competition  is  continually 
demanding  something  better.  The  wide-awake  man  of  industry  is  con- 
stantly trying  to  better  his  product  and  is  not  content  with  the  old  saying, 
"If  it  was  good  enough  for  father,  It  is  good  enough  for  me." 

11.  Salesmanship  is  one  of  the  most  important  essentials.  A  poor 
salesman  will  sell  some  goods  at  a  price,  but  a  good  man  sells  the  quan- 
tity for  the  price.  The  sales-manager  must  be  a  broad-minded,  far-visioned 
individual  who  knows  how  to  sell  goods  through  men,  the  mails  and  ad- 
vertising. He  must  know  human  nature  and  mold  his  salesmen  into  a 
loyal  fighting  team. 

12.  A  complete  set  of  records  showing  cost  of  materials,  cost  of  pro- 
duction, and  cost  of  distribution,  including  selling  cost,  must  be  kept  in 
order  to  know  if  an  industry  is  making  or  losing  money. 

Prom  the  answers  you  receive  to  these  questions  you  can  readily  judge 
whether  or  not  the  proposed  industry  will  prove  to  be  a  good  one  or  a 
bad  one  for  your  community. 


Location  of  Industries  37 


How  to  Locate  Industries  by  the  Development  Company  Plan 


III 

The  method  of  locating  Industries  by  means  of  the  Development  Com- 
pany is  becoming  very  popular  with  a  large  number  of  cities  which  for 
any  reason  find  themselves  compelled  to  supplement  their  natural  re- 
sources and  advantages  with  additional  inducements.  So  far  as  is  known 
the  plan  originated  in  Oklahoma  City,  when,  in  a  campaign  which  was 
heralded  over  the  country  as  a  wonderful  achievement,  that  city  raised  a 
fund  of  four  hundred  thousand  dollars  to  furnish  a  site,  railroad  switches 
and  facilities,  water  and  other  requisites  for  the  location  of  a  three  mil- 
lion dollar  packing  plant.  Since  that  time  the  idea  has  spread  and  the 
plan  in  various  forms  is  to  be  found  in  nearly  every  state  in  the  Union. 

The  simplest  statement  of  the  plan  is  that  it  is  a  holding  company 
organized  by  citizens  of  a  community  who  use  the  resources  of  the  com- 
pany for  the  purpose  of  stimulating  the  growth  of  new  and  old  industries 
in  the  community,  not  so  much  through  bonus-giving  as  by  properly  in- 
vesting those  resources. 

The  Development  Company  is  a  corporation  organized  and  incorpo- 
rated under  favorable  laws  for  the  profit  and  benefit  of  its  stockholders 
and  for  the  benefit  and  promotion  of  progress  in  a  community.  The  stock 
of  the  company  is  subscribed  by  the  citizens  of  the  community.  The  cap- 
ital of  the  company  should  be  of  an  amount  sufficiently  large  to  permit 
of  extensive  operations.  General  corporation  laws  permit  the  beginning 
of  business  when  one-half  of  the  capital  stock  is  subscribed. 

The  stock  can  be  raised  in  a  number  of  different  ways,  among  them 
being  the  quiet  individual  campaign,  the  enthusiastic  short-term  cam- 
paign, the  all-day  meeting  or  the  "progress  dinner"  plan. 

When  the  stock  is  subscribed  the  stockholders  should  meet  in  their 
first  annual  meeting  and  elect  a  board  of  trustees,  or  directors.  These 
in  turn  will  elect  their  president,  secretary  and  other  officers.  It  is  well 
to  have  for  the  secretary  of  the  Development  Company  the  secretary  of  the 
city's  commercial  organization,  because  he  is  naturally  in  closer  touch 
with  development  possibilities  than  anyone  else. 

Now,  after  the  company  is  organized  and  incorporated,  the  next  step 
is  to  put  the  plan  to  work.  Suppose  a  manufacturer  is  inclined  to  locate 
in  your  community  for  the  purpose  of  manufacturing  boots  and  shoes.  He 
tells  you  that  he  is  willing  to  invest  thirty  thousand  dollars  in  the  enter- 
prise, but  that  it  will  take  fifty  thousand  dollars  to  finance  the  industry. 
He  wishes  your  community  to  furnish  the  additional  twenty  thousand 
dollars. 

After  an  investigation  of  the  proposed  industry,  as  was  suggested  in  the 
preceding  article,  by  the  directors  of  the  Development  Company  and  the  propo- 
sition is  found  to  be  bona  fide,  the  directors  call  for  a  payment  on  the 
subscribed  stock,  sufficiently  large,  pro  rata  among  the  stockholders,  to 
cover  the  investment  of  the  twenty  thousand  dollars  in  the  boot  and  shoe 
factory  corporation.  When  the  boot  and  shoe  company  is  organized  it  is 
agreed  that  the  Development  Company  shall  have  a  certain  representation 
on  the  governing  board  of  that  company. 


38  City   Building 


In  this  manner  the  Development  Company  has  located  an  industry  in 
the  community  and  has  invested,  not  given,  twenty  thousand  dollars, 
which  will  draw  a  dividend  for  the  stockholders  of  the  Development  Com- 
pany. These  dividends  are  paid  into  the  treasury  of  the  Development 
Company.  In  turn  the  directors  prorate  to  the  individual  stockholders 
their  share  of  the  dividend,  after  paying  the  expenses  of  operation  for  the 
Development  Company. 

It  will  be  found  advantageous  in  securing  stock  subscriptions  if  all 
subscriptions  are  secured  upon  the  following  conditions;  that  no  part  of 
the  subscriptions  will  be  called  until  a  definite  proposition  to  locate  an 
industry  has  been  passed  by  the  directors ;  that  not  more  than  a  certain 
percentage  of  the  capital  stock  can  be  called  in  within  a  certain  period, 
i.  e.,  three  months;  and  that  no  subscriptions  are  to  be  in  force  until  at 
least  one-half  of  the  entire  capital  stock  has  been  subscribed. 

The  plan,  it  will  be  found,  will  work  in  many  other  ways;  in  fact, 
its  charter  should  be  drawn  in  as  broad  a  manner  as  possible  and  still 
conform  to  the  corporation  laws  of  the  state.  It  may  be  that  the  manu- 
facturer wants  nothing  more  than  a  factory  site.  By  means  of  the  De- 
velopment Company  a  piece  of  acreage  property  can  be  secured  on  the 
outskirts  of  the  city,  the  site  segregated  and  the  remainder  of  the  land 
plotted  and  sold  in  town  lots.  This  plan,  however,  will  be  treated  in  a 
more  extended  form  in  the  article  in  this  chapter  on  "How  to  locate 
industries  by  the  Town  Lot  Plan."  The  Development  Company,  under 
its  charter,  should  be  empowered  to  purchase  the  bonds  of  an  incoming 
industry  needing  assistance  of  this  character,  or  to  furnish  funds  on  long- 
time loans,  to  purchase  securities,  and,  in  short,  to  do  any  and  all  things 
necessary  and  incident  to  the  location,  establishment,  maintenance  and 
operation  of  industries  and  commercial  enterprises.  The  Development 
Company  can  organize  and  operate  its  own  industries  entirely  with  its  own 
capital,  if  it  is  so  desired.  In  this  case,  upon  a  majority  stock  vote  the 
stockholders  organize  a  subsidiary  company  for  the  development  of  some 
neglected  but  promising  resource.  This  subsidiary  company  is  then  cre- 
ated in  like  manner  as  any  other  company  applying  to  the  Development 
Company  for  assistance. 

The  original  Oklahoma  City  Development  Company,  organized  with 
$400,000  capital,  was  the  means  of  locating  in  the  community  more  than 
$10,000,000  of  new  capital  and  paid  back  to  the  stockholders  of  the  com- 
pany nearly  500  per  cent  in  dividends  in  two  and  a  half  year's  time.  This 
capital  stock  was  raised  in  less  than  one  hour's  time  and  a  second  Devel- 
opment Company  was  organized  a  short  time  later  with  the  same  capital 
which  was  subscribed  in  less  than  thirty  minutes. 


Location  of  Industries  39 


IV 
How  to  Locate  Industries  by  the  Credit  Plan 


What  is  meant  by  the  Credit  Plan  is  simply  the  advancement  of  credit 
or  endorsement  of  loans  for  industries  which  are  in  need  of  additional 
funds  for  the  proper  development  of  their  business.  A  number  of  cities 
have  adopted  this  plan  in  various  forms  with  varied  success.  This  plan  is 
also  known  as  the  Boston  Plan  and  the  Williamsport  Plan. 

Perhaps  the  best  explanation  of  the  plan  can  be  given  by  citing  the 
example  of  Williamsport,  Pa.  A  number  of  years  ago  the  community  was 
a  thriving  place  dependent  almost  entirely  upon  the  lumber  industry.  One 
individual  practically  controlled  the  industry.  He  met  with  reverses  and 
went  to  the  wall.  The  mills  were  closed  and  the  workmen  were  thrown 
out  of  employment.  The  city  suffered  a  period  of  serious  business  de- 
pression. 

A  mass  meeting  of  citizens  was  called  for  the  purpose  of  devising 
ways  and  means  of  relief.  It  was  decided  that  it  was  bad  for  a  community 
to  be  dependent  upon  a  single  industry.  It  was  also  recognized  that  man- 
ufacturers would  have  to  be  given  some  inducements  to  offset  the  effect 
of  the  lumber  failure.  A  committee  was  formed  to  provide  for  these 
inducements  and  to  determine  their  character.  The  committee  embodied 
in  its  report  the  credit  plan. 

A  campaign  was  organized  and  conducted  which  resulted  in  the  rais- 
ing of  many  thousands  of  dollars  in  guarantees.  No  money  was  collected, 
but  each  subscription  represented  the  amount  which  the  person  making 
the  subscription  agreed  to  stand  good  for  in  case  of  loss. 

The  plan  provided  that  industries  needing  loans  should  apply  to  a 
committee  .of  three  trustees,  whose  duty  it  was  to  go  carefully  into  the 
matter,  ascertaining  the  amount  of  the  loan  desired,  the  security  offered 
and  the  general  worth  and  merit  of  the  proposition.  If  the  trustees 
passed  upon  the  matter  favorably,  they  went  to  the  banks  with  which  the 
loan  was  to  be  placed,  made  out  the  notes  or  mortgages,  had  the  proper 
officials  representing  the  industry  to  endorse  the  notes  or  sign  the  mort- 
gages, and  then  signed  the  papers  themselves  a*  attorneys-in-fact  for  the 
signers  of  the  guarantee  fund. 

The  banks  notified  the  trustees  at  the  same  time  they  gave  notice 
to  the  officials  of  the  industry  when  payments  on  the  notes  or  mortgages 
were  due. 

In  case  of  loss  the  banks  notified  the  trustees,  who  in  turn  called 
upon  and  collected  from  each  subscriber  his  share  of  the  loss. 

The  banks  also  notified  the  trustees  of  their  collection  of  payments 
on  the  principal. 

Upon  this  plan,  which  in  large  measure  avoided  the  bonus-hunter,  the 
city  was  able  to  recover  and  has  been  steadily  growing  since  that  time. 

In  Boston  the  plan  is  very  similar.  Butler,  Pa.,  has  only  recently 
raised  about  $700,000  under  this  plan  and  has  located  several  industries 
by  its  use. 


40  City   Building 


At  Boston,  the  Chamber  of  Commerce  secured  a  charter  for  a  sepa- 
rate corporation  known  as  the  Industrial  Development  Company,  which 
wrote  contracts  with  various  subscribers,  to  create  a  guarantee  credit 
fund  of  $500,000,  one-tenth  of  which  is  paid  in.  Each  subscriber's  lia- 
bility is  limited  to  the  amount  of  his  contract.  Any  applicant  who  has  the 
approval  of  the  Chamber  of  Commerce  Committee  on  Industrial  Develop- 
ment and  the  Loan  Committee  of  the  Industrial  Development  Company 
receives  assistance  by  the  Development  Company  endorsing  his  note,  for 
which  the  Company  charges  a  commission.  As  the  applicants  are  found 
among  people  outside  of  banking  credit,  the  risk  is,  of  course,  high,  and 
it  has  been  thought  wise,  therefore,  to  keep  the  loans  small.  Another 
reason  for  preferring  a  considerable  number  of  small  loans  to  a  few  large 
ones  is  that  it  is  expected  to  produce  many  institutions  of  moderate  size 
out  of  which  some  big  one  may  possibly  grow,  rather  than  to  concentrate 
upon  a  few  conspicuous  ones. 

Jackson,  Mich.,  has  the  plan  with  some  modifications  over  the  Will- 
iamsport  plan.  About  two  years  ago  the  commercial  organization  in  Jack- 
son raised  a  fund  of  $106,000.  The  company  securing  the  loan,  together 
with  the  loan  secured,  must  be  approved  by  the  Manufacturers  Committee, 
the  Ways  and  Means  Committee,  and  the  Board  of  Directors  of  the  Cham- 
ber of  Commerce  before  the  matter  is  submitted  to  the  three  trustees  of 
the  guarantee  fund. 

After  all  have  approved  the  company  and  the  loan  asked,  the  propo- 
sition is  then  presented  to  four  banks  of  the  city  which  divide  the  loan 
equally  among  themselves.  The  notes  are  endorsed  by  the  trustees.  A 
first  real  estate  mortgage  also  runs  from  the  company  to  the  trustees. 

The  banks  charge  five  per  cent  interest  on  loans  made  in  this  manner 
and  payment  is  required  in  equal  annual  installments  covering  a  period 
of  from  five  to  ten  years. 

The  first  year  the  plan  was  in  operation  three  concerDs  were  located. 
Two  more  were  secured  this  spring  and  at  the  time  of  writing  this  article 
two  other  applications  are  pending. 

The  plan  has  been  found  satisfactory  in  financing  the  erection  of 
buildings  for  new  industries.  In  the  case  of  local  men  organizing  a  com- 
pany for  the  manufacturing  of  certain  products,  the  trustees  require  them 
to  furnish  the  site  for  the  factory  and  the  trustees  will  erect  the  buildings 
In  the  case  of  foreign  industries,  the  trustees  furnish  both  the  site  and 
buildings. 

Of  course,  the  entire  expense  of  site  and  buildings  is  borne  by  the 
incoming  company  and  is  paid  back  into  the  guarantee  fund  during  a  cer- 
tain period  of  time.  Nothing  in  the  way  of  a  bonus  is  given,  no  free 
sites,  free  water  or  donation  of  any  public  utilities.  Everything  is  paid 
for  by  the  company  desiring  to  locate,  but  assistance  is  given  in  the  ex- 
tension of  credit  sufficient  to  finance  the  operations  of  the  company,  en 
abling  them  to  begin  their  business  without  the  serious  handicap  of  lack 
of  capital. 


Location  of  Industries  41 


V 
How  to  Locate  Industries  by  the  Town  Lot  Plan 


Notable  examples  of  the  location  of  industries  by  the  Town  Lot  method 
are  to  be  found  in  Evansville,  Ind.,  Oklahoma  City  and  Muskogee,  Okla.  The 
feature  of  the  plan  is  the  securing  of  an  industrial  fund  for  a  city  without 
calling  for  outright  subscriptions  but  giving  real  value  for  the  money  secured. 

The  plan  has  been  operated  very  successfully  in  Evansville,  where  it  resulted 
in  supplying  sufficient  funds  to  defray  all  of  the  expenses  incident  to  the  loca- 
tion of  the  Vulcan  Steam  Shovel  Works,  a  monster  industry  employing  hun- 
dreds of  workmen. 

The  method  generally  employed  is  to  organize  a  company  of  local  citizens 
with  sufficient  capital  to  purchase  a  piece  of  acreage  property  lying  adjacent 
to  the  city.  After  the  land  is  purchased,  the  acreage  is  cut  up  into  town  lots, 
streets  are  surveyed  through  the  tract,  sidewalks  laid  out,  some  streets  and  side- 
walks built  and  the  lots  placed  on  the  market  at  an  advance  in  price  over  the 
purchase  price  and  the  cost  of  improvements  to  yield  a  good  profit.  This 
profit  can  be  divided  and  a  portion  turned  back  to  the  stockholders  of  the  pur- 
chasing company  and  the  balance  placed  in  the  industrial  fund  to  be  used  for 
defraying  expenses  occasioned  by  the  location  of  industries,  or  the  profit  can 
all  be  placed  in  the  industrial  fund  for  this  purpose. 

A  number  of  cities  locate  the  site  for  a  proposed  industry  in  the  center  of  a 
particular  tract  of  land,  which  is  properly  situated  with  reference  to  transporta- 
tion facilities,  water  and  power.  The  remainder  of  the  tract  is  then  sold  in  lots 
to  the  families  who  are  employed  in  the  factory  and  to  private  persons  who 
desire  to  purchase  the  lots  for  the  erection  of  stores  or  to  hold  as  an  investment. 

The  plan  presents  an  excellent  opportunity  to  cities  to  secure  model  factory 
additions.  If  the  public  spirited  citizens  of  a  community — those  who  desire  not 
only  to  see  their  city  prosper  by  the  addition  of  new  business  enterprises  but 
also  wish  their  city  to  be  a  pleasant  place  in  which  to  live — purchase  a  large 
tract  of  land  and  lay  out  good  streets  and  sidewalks,  parks  and  playgrounds, 
they  find  not  only  a  ready  market  for  the  lots  but  the  plan  will  also  prove 
attractive  to  companies  who  are  looking  for  a  location  for  their  plants  which 
they  desire  to  move  from  congested  districts  to  a  place  where  they  will  have 
more  room  and  pleasant  surroundings. 

The  manufacturers  are  fast  coming  to  the  conclusion  that  they  are  able  to 
get  more  and  better  work  from  their  employees  when  they  are  properly  housed 
and  surrounded  with  healthful  and  pleasant  environments.  The  city  which 
provides  for  such  a  contingency  is  fast  outstripping  in  the  location  of  the  best 
class  of  industries  those  which  neglect  such  work. 

When  Oklahoma  City  received  the  proposition  to  locate  a  three-million- 
dollar  packing  plant  provided  facilities  costing  about  three  hundred  thousand 
dollars  were  furnished,  the  job  looked  like  a  big  one,  but  the  citizens  devised 
the  stock  company  plan  and  purchased  a  large  body  of  land  close  to  the  city. 
This  they  platted  and  sold  in  lots.  In  less  than  one  hour  four  hundred  thousand 
dollars  had  been  subscribed  in  this  manner  and  the  location  of  the  packing 
plant  was  assured. 


42  City   Building 


Close  on  the  heels  of  this  first  effort  a  second  packing  plant  made  a  similar 
proposition  and  the  location  expenses  were  provided  for  in  the  same  manner. 

Muskogee,  Okla.,  raised  by  this  plan  three  hundred  thousand  dollars  in  two 
days'  time  which  fund  was  used  to  defray  the  expenses  of  locating  five  new 
industries.  Enid,  Okla.,  has  recently  adopted  the  plan  and  has  already  raised 
a  large  industrial  fund  by  it.  Other  cities  are  adopting  the  plan  and  with  but 
few  exceptions  it  has  resulted  in  success. 

At  Indianapolis  the  plan  on  a  tremendous  scale  has  been  attempted.  It  is 
purposed  to  build  a  model  factory  addition  to  the  city,  besides  those  already  in 
existence,  at  a  cost  of  $2,500,000.  A  large  area  of  farming  land  was  secured, 
platted,  wide  boulevards  and  streets,  parks  and  playgrounds,  business  sections, 
factory  sites  and  residence  sections  laid  out,  model  residences  and  business  blocks 
erected  and  the  lots  sold  at  a  price  to  pay  all  expenses  and  a  handsome 
profit  besides.  It  was  estimated  that  the  cost  of  the  land  and  the  improvements 
would  amount  to  $250  per  lot  and  the  purchase  price  was  set  at  $400  per  lot. 
A  portion  of  the  profit  was  set  aside  in  the  industrial  fund  to  pay  expenses 
of  locating  new  industries.    The  plan  has  been  successfully  completed. 

Some  of  the  advantages  of  the  plan  are: 

First :  It  furnishes  a  city  with  an  industrial  fund  which  can  be  used  when- 
ever needed  for  expenses  of  locating  industries  or  commercial  enterprises. 

Second:  It  enables  a  city  to  establish  a  factory  addition  thus  segregating 
such  businesses  in  distinct  portions  of  the  city  and  in  large  measure  preventing 
the  encroachments  of  the  factories  upon  the  residential  sections  and  sections  of 
the  city  devoted  to  other  business  enterprises. 

Third:  It  presents  to  a  city  the  opportunity  to  secure  model  additions  for 
business  or  residential  purposes  or  for  both  combined. 

Fourth:  It  affords  the  opportunity  to  attract  the  better  class  of  industries 
seeking  a  location  by  furnishing  sanitary  housing  and  pleasant  healthful  environ- 
ments for  factory  employees. 

Fifth:  By  having  the  factory  located  in  the  addition,  the  employees  are 
housed  close  to  their  work  and  are  thus  kept  freer  from  disturbing  ^  in- 
fluences such  as  strikes  and  are  consequently  more  contented  and  less  liable 
to  wander  to  other  places.  The  effect  of  such  living  is  to  be  seen  upon  their 
children  who  grow  up  feeling  that  the  city  is  their  home  and  consequently  be- 
come good  citizens. 


Location  of  Industries  43 


VI 
How  to  Locate  Industries  by  the  Incubator  Plan 


The  Incubator  Plan  is  so-called  because  it  permits  the  location  of  small 
industries  in  power  buildings  where  expenses  of  operation  are  cut  to  the  mini- 
mum, thereby  making  possible  the  existence  of  business  enterprises  which  other- 
wise would  find  cost  of  production  so  high  that  they  could  not  successfully  enter 
the  market  and  meet  competition. 

Nearly  every  city  has  its  great  power  buildings  where  light,  heat,  power, 
elevator  service,  modern  shipping  facilities  and  all  other  conveniences  are  fur- 
nished at  a  rental  rate  which  would  fall  far  short  of  the  interest  on  the  capital 
necsesary  to  be  invested  to  supply  as  well  an  equipped  plant  for  housing  each 
of  many  small  industries  separately. 

Some  of  these  power  buildings,  or  incubators,  as  they  are  often  called,  are 
very  large  and  house  hundreds  of  industries.  Sometimes  each  floor  of  the 
building  will  have  a  number  of  varied  industries,  each  manufacturing  articles 
entirely  different  from  their  next  door  neighbor. 

Whole  sections  of  some  cities  are  occupied  entirely  by  such  buildings  and 
by  the  community  of  interest  afforded  by  them  these  business  enterprises  are 
enabled  to  secure  the  very  latest  improvements  in  the  way  of  machinery  and 
service  at  the  minimum  of  cost. 

The  Bush  Terminals  in  New  York  City  furnish  a  splendid  example  of  the 
possibilities  of  locating  industries  under  this  plan.  Here  are  to  be  found  im- 
mense buildings  fitted  throughout  with  the  most  modern  conveniences  and 
facilities  for  the  quick  and  economical  handling  of  freight,  express  and  mail. 
Railroad  facilities  are  to  be  found  in  the  courts  surrounding  the  factory  floors 
and  along  the  water  front  of  the  buildings  are  established  ample  and  comt- 
modious  wharves  equipped  with  modern  appliances  for  the  handling  of  freight 
bound  to  its  destination  by  the  water  route. 

The  incubator  building  will  be  found  of  great  benefit  to  any  city  in  securing 
the  location  of  industries  so  small  that  the  expense  of  erecting  a  separate  build- 
ing for  their  plants  would  not  be  justified.  It  is  a  comparatively  easy  matter 
to  secure  one  or  more  for  a  city  where  the  demand  is  experienced  or  the  future 
prospects  for  such  industries  seems  to  demand  it. 

It  is  not  at  all  necessary  that  these  buildings  should  be  erected  at  a  tre- 
mendous cost.  A  small  stock  company  of  local  citizens  can  be  organized  which 
will  purchase  a  site  well  located  with  reference  to  railroads.  Some  of  the  stock- 
holders can  quickly  make  a  trip  to  the  nearest  city  with  power  buildings  and  a 
short  investigation  will  give  the  entire  plan  of  the  building  proposed  to  be 
built  to  suit  local  conditions. 

In  the  erection  of  the  building  care  should  be  taken  to  provide  the  most 
economical  method  of  handling  both  incoming  and  outgoing  materials.  The 
central  energy  station  from  which  power  is  transmitted  to  all  portions  of  the 
building  should  be  so  located  as  to  facilitate  to  the  utmost  the  quick  trans- 
mission of  power  with  the  minimum  of  loss.  Especially  is  this  true  of  build- 
ings where  the  power  furnished  is  steam. 


44  City   Building 


The  stockholders  who  erect  such  a  building  will  obtain  their  income  from 
the  rentals  which  would  be  placed  at  a  low  enough  figure  to  attract  the  indus- 
tries. They  will  then  be  found  to  produce  a  handsome  dividend  on  the  capital 
invested.  The  rental  is  usually  made  to  cover  all  utilities,  such  as  power,  light, 
heat,  elevator  service,  water  and  shipping  facilities. 

Too  great  attention  cannot  be  paid  in  the  erection  of  such  a  building  to  sani- 
tation, including  ventilation  and  the  proper  disposal  of  sewerage  and  all  waste 
products  of  the  industries.  With  very  little  expense  rest  rooms  for  the  female 
employees  of  the  industries,  lunch  rooms  for  all  and  like  accommodations  can 
be  provided. 

It  takes  work,  good  consistent  team-work  on  the  part  of  the  citizens  of  a 
community  to  secure  the  location  of  industries  no  matter  what  plan  is  used  nor 
what  advantages  your  city  has.  To  interest  the  prospective  industry  means 
selling  the  advantages  of  your  city.  To  judge  the  industry  which  applies  for  a 
location  asking  for  additional  inducements  beside  the  natural  advantages  of 
your  city  requires  the  attention  of  your  best  business  men.  To  fight  shy  of 
the  bonus-hunter  who  is  constantly  appearing  and  reappearing,  each  time  with 
a  more  plausible  story,  requires  constant  diligence.  To  finance  the  expenses 
of  location  of  a  good  industry  requires  the  co-operation  of  your  citizens.  All 
of  this  requires  work,  not  only  from  one  man,  the  commercial  secretary,  but 
from  all  the  live,  wide-awake  citizens  who  have  an  earnest  desire  to  see  your 
city  grow. 

Of  all  plans  yet  adopted  by  cities  for  the  financing  of  location  operations 
the  Development  Company  Plan  bids  fair  to  out-live  the  rest.  The  reason  is 
manifest.  When  the  Development  Company  is  once  organized,  under  its  charter, 
it  is  possible  to  lend  its  credit  to  incoming  industries  by  financing  its  loans  in 
the  company's  own  funds  by  either  the  purchase  of  industrial  bonds  or  making 
loans  outright;  it  is  possible  to  handle  the  Town  Lot  plan  through  its  channels 
as  is  being  done  in  the  State  of  Oklahoma;  and  it  is  also  possible  to  erect  the 
incubator  or  power  building  with  a  portion  of  the  Development  Company 
capital  stock,  besides  the  Development  Company  has  the  authority  to  subscribe 
for  industrial  stocks. 

Another  advantage  of  the  Development  Company  is  that  when  organized  a 
fund  is  then  provided  which  can  be  demanded  from  the  stockholders  at  any 
time  it  is  needed,  whereas  without  it  the  community  which  finds  itself  in  need 
of  finances  at  any  particular  time  is  compelled  to  go  out  and  drum  the  business 
men  and  citizens  for  subscriptions  and  then  repeat  the  dose  when  the  next  occa- 
sion requires. 


Conventions  45 


CHAPTER  4 

CONVENTIONS 


The  Value  of  Conventions  for  Advertising  The  City. 

The  values  of  conventions  to  a  city  are  so  numerous  that  to  enumerate 
them  all  would  require  a  volume  of  many  pages. 

In  the  first  place,  comes  the  direct  benefit  of  having  visitors  in  the 
city  from  various  parts  of  the  state,  country,  or  countries.  With  moat 
convention-delegates  the  session  is  a  vacation  period.  Consequently,  they 
are  free  spenders  of  money.  Hotels,  restaurants  and  some  classes  of 
stores  are  the  first  beneficiaries.  All  of  the  other  business  interests  of 
the  city  are  secondary  beneficiaries,  because  the  money  received  by  the 
hotels,  restaurants  and  other  establishments  direct  is  afterwards  spent 
by  them  for  supplies  and  other  goods  which  they  desire  to  purchase. 

Chicago  estimates  that  her  conventions  are  worth  in  the  neighbor- 
hood of  $10,000,000  annually.  Detroit  also  estimates  her  conventions 
to  be  worth  in  "new  money"  about  $8,000,000  each  year.  A  little  figuring 
for  yourself  on  the  last  convention  held  in  your  city  will  show  you  some- 
thing of  the  value  of  these  gatherings  in  leaving  "new  money"  in  the 
community. 

If  your  city  has  any  considerable  number  of  wholesale  and  jobbing 
houses,  you  will  find  it  of  great  advantage  to  secure  as  many  state  con- 
ventions as  possible.  The  delegates  to  such  meetings  are  in  large  measure 
retail  merchants.  When  they  meet  in  your  city,  it  affords  a  splendid  op- 
portunity to  your  wholesalers  to  meet  them,  and  the  chances  are  that  many 
orders  for  goods  will  be  left  behind  when  the  convention  adjourns. 

One  of  the  greatest  values  of  the  convention  is  the  opportunity  which 
it  affords  for  advertising  the  community.  This  subject  proper  will  be  dis- 
cussed under  the  head  of  "Special  Publicity."  There  is  one  phase  of  the  subject 
which  will  be  taken  up,  however,  in  this  article.  That  is  the  value  of  adver- 
tising through  the  convention  in  securing  additional  residents. 

If  the  proper  efforts  are  made  while  a  convention  is  meeting  to  find 
those  among  the  delegates  who  are  not  altogether  satisfied  with  their 
present  places  of  residence,  many  times  good  settlers  will  be  found.  Men 
are  constantly  retiring  from  business.  Conventions  which  meet  this  year 
have  many  new  faces  where  old  ones  were  last  year.  The  city  which  enter- 
tains a  convention  and  makes  an  impression  of  its  beauty,  thrift  and  pleas- 
ant environments  will  soon  see  the  result  in  the  location  of  wealthy  or 
well-to-do  individuals  who  come  in  quietly  and  unobtrusively  and  take 
up  their  place  of  abode. 

This  is  also  true  in  the  matter  of  locating  new  enterprises  in  the  city. 
Concerns  are  constantly  outgrowing  their  present  quarters  and  are  looking 
for  a  new  location  where  they  will  have  better  facilities  and  a  larger 
market  in  which  to  operate.  Representatives  of  such  concerns  rarely  fail 
to  attend  the  annual,  district  or  state  convention  of  their  particular  line 
of  business.  Therefore  it  is  easy  to  be  seen  the  chance  of  making  a  favor- 
able impression  upon  such  delegates  every  time  a  convention  is  held  in 
the  city. 


46  City   Building 


If  your  city  is  fortunately  located  in  a  favored  spot  considered  from 
the  standpoint,  either  of  climate,  beautiful  surrounding  country,  historical 
points  of  interest,  or  otherwise,  the  delegates  to  a  convention,  if  given 
the  proper  attention,  will  be  duly  impressed  with  these  features  and  will 
again  visit  your  community,  perhaps  not  as  a  delegate,  but  on  a  pleasure 
trip.  Furthermore,  that  delegate  will  return  to  his  home  loud  in  his 
praise  for  your  city. 

Another  value  of  the  convention  which  should  not  be  underestimated 
is  that  of  the  effect  of  that  gathering  upon  the  city  itself.  The  holding  of 
a  convention  usually  brings  together  the  biggest  men  in  the  jurisdiction 
of  that  particular  convention,  whether  it  be  state,  district,  national,  or 
international  in  character.  These  men  usually  express  themselves  upon 
the  live  topics  of  the  day  through  interviews  in  the  newspapers.  Usually 
the  convention  of  business  concerns  discuss  the  most  up-to-date  methods  of 
doing  business.  Such  conditions  prevailing  for  a  period  of  several  days  in  any 
city  cannot  help  but  accomplish  some  results  in  keeping  that  community 
alive  and  up-to-the-minute. 

Milton  Carmichael,  the  father  of  the  convention  bureau  idea,  has 
demonstrated  beyond  the  shadow  of  a  doubt  the  value  of  the  convention 
in  the  city  of  Detroit.  His  efforts  brought  to  Detroit  for  the  year  of  1910  a 
total  of  185  conventions,  which  brought  185,000  visitors  to  the  city.  There  were 
but  four  weeks  during  the  year  in  which  no  conventions  were  held.  Car- 
michael's  ideas  are  worth  copying  and  application  to  him  for  information  con- 
cerning nearly  any  phase  of  the  convention  question  will  find  him  ever  ready  to 
render  assistance.  Atlantic  City,  N.  J.,  also  has  an  enviable  reputation  as  a 
convention  city. 

It  is  almost  impossible  to  overestimate  the  value  of  conventions  to 
any  city,  whether  considered  from  the  standpoint  of  the  "new  money" 
brought  in  and  left  with  the  business  interests,  the  opportunity  afforded 
for  advertising  the  city,  or  from  any  other  standpoint.  The  entertaining 
of  conventions  has  passed  the  experimental  stage  and  has  become  one  of 
the  strongest  points  of  city  building  among  the  most  up-to-date  cities  in 
this  country. 


Conventions  47 


II 

Special  Publicity 


One  of  the  values  to  a  city  accruing  from  the  entertaining  of  con- 
ventions which  was  mentioned  in  the  preceding  article  was  the  splendid  oppor- 
tunity afforded  the  city  for  special  publicity.  The  cities  which  are  the  most 
active  in  this  important  form  of  city  building  also  show  the  greatest  ac- 
tivity in  advertising  themselves  for  special  advantages, 

In  order  to  secure  a  convention,  special  publicity  of  the  advantages 
of  the  city  for  the  holding  of  that  particular  convention  must  be  had. 
This  advertising  matter  must  be  distributed  among  those  in  whose  power 
rests  the  naming  of  the  place  for  the  holding  of  the  next  convention. 
Those  whose  votes  count  must  be  solicited,  in  most  cases  very  strenuously. 
Competition  is  growing  keener  and  keener  among  cities  in  this  field  of 
activity  and  as  the  competition  grows  the  opportunity  for  more  publicity 
increases. 

In  this  advertising  matter  is  given  the  opportunity  to  display  in  type 
and  cuts  the  beauty,  accessibility,  and  thrift  of  the  city.  The  business 
and  industry  of  the  community  makes  a  story  which  can  be  used  often- 
times with  telling  effect  in  a  campaign  for  some  special  convention.  The 
advantages  of  the  city's  wholesale  and  jobbing  market  will  frequently  ap- 
peal to  conventions.  This  is  also  true  of  the  city's  advantages  as  a  retail 
market.  There  is  practically  no  limit  to  the  recitation  of  the  city's  his- 
tory, achievements  and  assets  in  "the  hard-fought  convention  campaign. 

There  is  no  city  in  the  country  but  what  can  entertain  conventions  if 
it  desires.  There  are  none  but  what  have  their  attractions  and  the  battle 
is  more  than  half  won  when  these  attractions  are  presented  to  the  pros- 
pective conventions  in  a  fascinating  manner.  Publicity  is  the  weapon 
which  secures  the  convention,  while  the  advantages  of  the  city  compose 
the  motive  power  for  wielding  that  weapon. 

This  publicity  may  and  does  take  almost  innumerable  forms.  Book- 
lets and  folders  form,  perhaps,  the  major  portion  of  the  most  systematic 
campaigns  of  the  successful  cities.  For  example,  Detroit  issued  75,000 
advertising  booklets  from  its  convention  bureau  in  one  year  alone,  and  they 
say  that  they  would  like  to  see  more  progressive  work  along  this  line  done. 
Chicago  sends  out  tons  upon  tons  of  such  matter  every  year.  Omaha  raises 
and  spends  $15,000  per  year,  aside  from  its  membership  dues,  in  this 
work.  Practically  the  only  limit  to  the  amount  and  character  of  pub- 
licity for  use  in  convention  campaigns  depends  upon  the  capacity  of  the 
executive  officer  of  the  convention  bureau  for  creating  and  distributing 
the  matter. 

Another  form  not  only  of  giving  publicity  to  the  city,  but  also  effi- 
cacious in  increasing  the  attendance  of  delegates  to  conventions  is  special 
articles  in  trade  journals.  Most  of  the  conventions  held  each  year  are 
trade  conventions,  each  iiaving  its  official  organ  or  journal.  The  annual  con- 
vention is  the  one  big  event  of  the  year  with  the  journal  and  consequently 
they  are  glad  to  print  elaborate  articles,  highly  illustrated,  concerning  the 


48  City  Building 


city  in  which  the  next  convention  is  to  be  held.  Several  cities  secure  each 
year  hundreds  of  thousands  of  inches  of  advertising  space  in  this  manner 
and  at  a  cost  which  is  practically  nothing. 

Badges  and  buttons  are  nearly  always  used  both  in  the  convention 
campaign  and  also  during  the  session  of  the  convention.  If  a  city  has  a 
slogan,  it  is  usually  printed  on  a  button  and  thousands  of  them  freely  dis- 
tributed. These,  together  with  the  badges  worn  by  delegates  and  visitors, 
are  in  most  cases  taken  home  and  kept  as  souvenirs  of  the  visit. 

Another  form  is  the  bill-board.  This  is,  perhaps,  one  of  the  newest 
forms  of  publicity  to  be  tried  out.  At  least  one  city  has  used  it.  That 
city  had  hugh  posters,  nine  by  twenty-one  feet,  printed  and  distributed 
through  one  hundred  cities  during  the  summer  months  calling  attention 
to  the  advantages  that  city  possessed  as  a  convention  city  and  as  a  sum- 
mer resort. 

A  splendid  distributing  medium  for  a  substantial  part  of  booklet  and 
folder  advertising  matter  is  through  the  railroads.  Detroit  kept  on  file 
its  booklets  in  the  time-table  racks  in  1,125  places  in  280  cities,  for  free 
distribution  to  the  public  during  1911.  Hundreds  of  inquiries  concerning 
the  city  were  a  result  of  this  publicity. 

One  point  which  should  not  be  overlooked,  and  that  is,  all  the  adver- 
tising which  is  printed  should  be  of  the  highest  type.  Shoddy  stuff  will 
nearly  always  ruin  chances  to  secure  conventions  which  otherwise  would 
be  won.  Good  printing  puts  a  good  taste  in  the  recipient's  mouth  and 
will  command  his  attention  sufficiently  long  for  him  to  catch  at  least  a 
part  of  your  story,  and  all  of  it,  if  it  is  sufficiently  interesting. 

Another  opportunity  for  advertising  the  city  is  when  the  convention 
delegates  arrive  in  the  city.  Meet  them  cordially  and  make  them  know 
that  you  are  delighted  to  have  them  enjoy  a  few  days  in  the  best  city  in 
the  country.  Special  advertising  matter,  giving  points  of  interest  in  and 
about  the  city,  with  directions  how  to  reach  them,  side  trips  that  can  easily 
be  made  and  other  general  information,  will  be  greatly  appreciated.  But 
this  subject  will  be  more  fully  treated  under  the  subject  "How  to  Enter- 
tain a  Convention,"  which  is  the  last  article  in  this  chapter. 


Conventions  49 


III 
How  to  Secure  Conventions  by  Letter  Campaigns 


The  letter  campaign  is  one  of  the  best  means  by  which  valuable  publicity 
can  be  given  a  city.  It  is  worth  much  in  this  particular  and  many  times  can  be 
used  exclusively  in  securing  good  conventions.  The  letter  campaign  has  some 
decided  advantages  over  the  personal  campaign.  Such  a  campaign  can  be  con- 
ducted at  much  less  expense.  The  postage  stamp  on  the  letter  gives  it  entrance 
into  the  office  of  the  busiest  man.  One  who  can  write  "letters  that  win,"  one! 
who  can  put  the  "talk"  into  them,  can  accomplish  surprising  results  from  the 
use  of  this  campaign. 

The  first  thing  to  do  is  to  decide  upon  the  convention.  One  of  the 
requisites  in  convention  campaigning  is  to  know  the  conventions  that  are 
to  be  held,  where  they  are  now  meeting,  in  whose  power  the  choice  of  next 
meeting  place  is  held,  the  officers  of  the  body,  the  number  of  delegates, 
the  number  of  visitors  and  other  data  of  like  character.  It  is  compara- 
tively easy  to  get  track  of  and  keep  a  line  on  the  conventions  which  meet 
in  one's  own  state.  The  most  important  are  known  generally  over  the 
state.  The  less  important  are  a  little  more  difficult,  but  a  line  can  be 
secured  on  them  by  writing  to  the  principal  hotels  throughout  the  state 
asking  them  for  their  list  of  convention  dates.  This  means  will  also  be 
sure  to  give  a  large  percentage  of  the  names  of  the  officers  of  these  con- 
ventions. 

The  district  conventions  are  a  little  harder  to  get  in  touch  with  than 
the  state  meetings.  A  few  letters  to  trade  journals  will  give  the  required 
data  on  trade  conventions.  Other  letters  to  prominent  professional  men 
will  bring  results  on  this  class  of  conventions.  And  again  the  hotels  in 
the  larger  cities  of  the  surrounding  states  will  add  further  information. 
The  national  conventions  can  be  located  in  much  the  same  manner,  only 
broader.  Besides  this  method  of  securing  information,  there  are  a  num- 
ber of  publications  issued  regularly  which  are  devoted  exclusively  to  keep- 
ing track  of  all  kinds  of  conventions. 

When  the  convention  desired  has  been  decided  upon  and  the  names 
of  the  officers  have  been  found,  write  to  them  to  see  if  the  meeting  place 
for  the  next  year  has  been  selected.  If  not,  find  out  who  has  the  decision 
of  this  point,  whether  the  delegates  themselves  select  the  place  in  some 
session  of  the  convention,  or  whether  this  matter  is  left  to  a  committee. 
If  the  delegates  have  the  deciding  voice,  secure  the  names  of  all  of  them, 
if  possible.  Write  to  them  as  strong  a  letter  of  invitation  as  possible. 
Send  your  advertising  booklets  or  other  matter  of  special  character  to 
them  and  do  everything  in  this  and  your  letter  to  create  the  desire  in  the 
heart  of  the  delegate  to  hold  that  convention  in  your  community. 

Some  of  the  delegates  will  reply  to  your  letter.  From  these  replies 
you  can  tell  whether  or  not  they  are  your  friends.  They  will  in  all  prob- 
ability drop  some  expression  upon  which  you  can  hinge  another  argu- 
ment in  favor  of  your  city,  thus  giving  you  the  chance  you  are  looking 
for  to  keep  the  matter  before  him.  Other  delegates  will  not  pay  any  at- 
tention to  your  communication.     You  can  help  them  in  their  replies  by 


50  City  Building 


asking  them  for  their  opinions  and  enclosing  a  return  postal  for  that  re- 
ply. If  they  do  not  reply,  then  start  your  follow-up.  After  a  little  expe- 
rience in  this  method  of  convention  campaigning,  you  will  evolve  a  good 
follow-up  system  of  several  letters.  Let  the  delegates  have  these  letters 
at  intervals,  making  each  one,  if  possible,  a  little  stronger  than  the  last, 
bringing  out  new  arguments  and  using  all  of  the  persuasive  powers  of 
which  you  are  capable. 

In  the  recital  of  the  advantages  of  your  city  it  is  easy  to  forget  the 
personality  of  your  correspondent.  Don't  forget  the  "you"  attitude. 
Make  the  delegate  feel  his  importance  as  a  deciding  factor  in  the  ques- 
tion and  appeal  to  his  comfort  and  pleasure  in  such  a  way  as  to  lead  him 
to  believe  that  he  will  miss  the  treat  of  his  life  if  the  convention  does  not 
come  to  you. 

Do  everything  you  can  to  get  him  to  reply,  and  when  he  replies  you 
then  can  better  judge  how  to  go  after  his  vote.  It  has  been  truly  said 
that  you  can't  whip  a  man  in  an  argument  if  he  keeps  his  mouth  shut. 
As  the  time  draws  nearer  for  the  vote  to  be  taken,  begin  making  things 
hotter  for  him.  Post-cards  of  particularly  interesting  or  beautiful  scenes 
in  your  locality  can  be  made  an  effective  part,  of  this  follow-up  campaign. 
If  possible,  secure  an  expression  from  these  delegates  in  your  favor  and 
the  chances  are  that  conscientious  scruples  will  keep  many  of  them  in  line 
for  you,  no  matter  how  hard  a  fight  for  the  convention  may  be  made  by 
other  cities. 

Practically  the  same  sort  of  a  campaign  can  be  prosecuted  in  the 
event  a  committee  has  the  deciding  power  of  where  the  next  convention 
shall  be  held.  If  you  fail  in  securing  the  convention,  you  may  succeed  in 
getting  a  pledge  for  the  next  year's  meeting,  which  to  all  intents  and  pur- 
poses is  a  victory  for  you.  Even  if  you  do  not  secure  the  convention,  nor 
even  a  pledge  of  a  coming  convention,  you  have  accomplished  a  deal  of 
good  publicity  for  your  city  and  the  chances  are  that  if  you  go  after  the 
same  convention  in  the  future  many  of  the  delegates  or  members  of  the 
committee  will  remember  your  campaign  and  feel  very  kindly  toward  your 
city,  which  will  greatly  lessen  your  work  in  that  campaign. 

A  personal  letter  campaign  can  be  used  successfully  in  securing  a 
number  of  conventions  which  could  not  be  secured  in  other  ways,  because 
of  the  comparatively  small  expense  attached  to  it. 


Conventions  51 


IV 
How  to  Secure  Conventions  by  Personal  Campaigns 


A  pretty  good  saying  it  is,  that  if  you  want  anything,  go  after  it  your- 
self. In  convention-getting,  if  it  is  possible,  attend  the  convention  in  per- 
son and  bring  it  back  with  you. 

The  preliminary  work  of  getting  in  touch  with  the  convention  and 
how  the  choice  of  cities  is  to.  be  made  is  the  same  as  shown  in  the  pre- 
ceding article,  "How  to  Secure  Conventions  by  the  Letter  Campaign."  Y|ou 
must  find  out  the  dates  of  the  conventions  whose  delegates  decide  the  next 
meeting  place  during  the  session  of  the  convention,  or  the  dates  of  the 
meeting  of  the  committee,  if  the  choice  of  cities  is  left  to  such  a  body  for 
decision. 

GO  to  the  convention  or  to  the  committee  meeting  with  your  com- 
mittee, delegation,  or  by  yourself.  Take  with  you,  or  have  shipped  be- 
fore you,  the  special  advertising  matter  concerning  your  city. 

From  the  time  you  reach  your  destination  until  the  question  is  de- 
cided you  have  nothing  but  work.  A  very  good  plan  to  follow  is  to  get  in 
touch  with  the  officers  of  the  convention  at  once.  Make  friends  with 
them  and  they  will  be  able  to  greatly  assist  you  by  keeping  you  posted  as 
to  what  is  going  on  and  just  when  the  question  of  next  meeting  place  will 
be  taken  up. 

Convention  officers  usually  have  a  great  deal  to  say  about  where  the 
convention  shall  next  go.  Their  influence  in  your  campaign  is  worth  mak- 
ing special  effort  to  secure.  If  the  opportunity  presents  itself,  have  a  talk 
with  them  concerning  the  invitation  of  your  city.  Feel  them  out,  and,  if 
necessary,  present  to  them  your  arguments  to  offset  their  objections.  The 
primary  thing  to  do  is  to  secure  their  support. 

The  next  point  upon  which  to  concentrate  your  energies  is  the  dele- 
gates themselves.  From  the  officers  of  the  convention  you  will  be  able 
to  ascertain  from  what  section  of  the  territory  over  which  the  convention 
has  jurisdiction  comes  the  largest  delegation,  what  delegation  is  the  most 
influential,  and  the  size  and  influence  of  the  other  important  delegations. 

Then  ascertain  what  cities  are  your  competitors  in  the  fight  to 
land  the  convention.  This  will  usually  be  a  very  easy  matter,  because  of 
their  publicity.  Before  you  come  to  the  convention,  you  should  carry  on 
a  vigorous  campaign  of  advance  publicity  for  your  city.  Make  it  known 
that  you  will  be  a  contender  for  the  next  meeting  place.  Let  the  advan- 
tages of  your  city  as  a  convention  place  be  known  to  all  the  delegates,  If 
possible,  but  at  any  rate  to  the  officers  and  principal  delegations. 

After-  learning  what  cities  are  entering  the  fight,  compare  the  advan- 
tages of  those  cities  with  yours.  This  comparison  will  give  you  your  best 
arguments.  It  is  not  often  that  dark-horse  cities  enter  the  fight  for  a 
convention  and  win  out.  So  you  will  in  nearly  every  case  be  able  to  pre- 
pare yourself  to  combat  the  arguments  of  the  other  cities. 

Now  you  are  ready  to  really  go  after  the  convention.  The  preliminary 
work  has  been  accomplished  and  it  is  now  up  to  you  to  demonstrate  your 


52  City  Building 


ability  as  a  politician.  Secure  an  introduction  to  some  member  of  the 
most  powerful  delegation,  both  in  influence  and  number  of  votes.  From 
this  delegate  you  will  be  able  to  secure  an  introduction  to  the  leader  of 
that  delegation.  The  average  politician  is  successful  because  he  is  an  apt 
student  of  human  nature  and  when  you  meet  the  head  of  this  delegation 
you  have  the  opportunity  to  show  your  ability. 

What  you  want  is  to  secure  a  few  minutes  quiet  talk  with  this  man 
in  which  to  sell  him  your  city  as  the  next  meeting  place.  In  this  interview 
you  must  present  the  arguments  of  the  competing  cities  and  then  answer 
them  by  showing  your  counter-advaDtages  and  superior  reasons  for  the 
convention.  You  must  be  able  to  overwhelm  him  with  the  importance  of 
your  city,  and  if  you  succeed  in  doing  this,  the  chances  are  that  you  will 
receive  his  support.  Of  course,  there  are  times  when  a  little  entertain- 
ment can  be  used  effectively.  But  this  method  of  influencing  men  is  fast 
disappearing,  and  whether  or  not  you  can  successfully  use  it  depends  upon 
your  ability  to  read  your  man. 

If  you  secure  the  support  of  the  head  of  this  delegation,  then  en- 
deavor to  obtain  his  promise  to  have  his  delegation  vote  for  your  city 
solidly.  If  he  is  not  favorably  inclined  to  your  invitation,  then  try  to  get 
him  to  put  the  "soft  pedal"  on  his  opposition.  In  this  case,  meet  as  many 
of  the  members  of  his  delegation  as  possible  and  endeavor  to  create  upon 
them  as  favorable  an  impression  for  your  invitation  as  possible. 

The  same  method  of  procedure  should  be  adopted  with  the  other  del- 
egations, only  stopping  in  this  work  when  the  vote  on  the  question  has 
ended.  When  the  vote  begins  is  the  critical  time  of  the  seige.  You  have 
by  this  time  secured  some  ardent  supporters  among  the  delegates.  If  pos- 
sible, form  these  men  into  a  committee  of  "whips."  Secure  their  active 
co-operation  on  the  floor  of  the  convention  in  keeping  your  pledged  dele- 
gates in  line.  If  you  secure  your  convention,  your  battle  is  won  imme- 
diately; but  if  you  fail,  you  have  not  lost,  but  have  advertised  your  city 
in  such  a  way  that  many  of  the  delegates  will  never  forget  it,  and  you 
stand  an  excellent  chance  to  secure  the  convention  the  following  year. 

There  are  no  set  rules  for  securing  a  convention,  but  the  method  of 
procedure  depends  almost  entirely  upon  the  capacity  of  the  man  who  is  en- 
gineering the  campaign  for  it,  as  was  said  above.  However,  this  article 
is  written  to  show  some  of  the  methods  in  use  among  successful  conven- 
tion cities. 


Conventions  53 


V 

How  to  Organize  and  Finance  a  Convention  Bureau 


The  city  that  expects  to  secure  an  appreciable  number  of  conven- 
tions of  value  can  do  little  without  concerted  action  and  organized 
effort.  Competition  among  cities  in  this  line  of  City  Building  is 
too  keen  to  permit  a  city  to  secure  many  conventions  in  a  haphazard  sort 
of  way.  It  takes  vigorous  effort,  sustained  effort,  and  prompt  effort  to 
secure  these  gatherings  which  mean  so  much  to  a  city  in  "new  money" 
and  the  opportunity  they  afford  for  publicity. 

Look  at  the  cities  that  are  successful  in  securing  these  meetings  and 
notice  the  efficient  organizations  which  they  have.  Many  of  them  are 
models  of  excellence.  Among  them  may  be  mentioned  the  Chicago  Asso- 
ciation of  Comerce,  in  which  the  convention  bureau  is  made  a  department 
of  the  general  work  of  the  organization,  the  Detroit  Convention  and  Tourr 
ist  Bureau,  the  Greater  Baltimore  Committee,  the  Louisville  Convention 
and  Publicity  League  and  many  others  too  numerous  to  mention.  These 
cities  are  all  successful  convention-getters.  In  some  particulars  their  or- 
ganizations are  dissimiliar  but  in  the  main  points  they  are  alike.  The 
following  plan  of  organization  is  adapted  from  the  best  in  all  of  them: 

Where  the  city  has  no  organized  effort  to  secure  conventions,  the  first 
step  to  pursue  is  to  call  a  meeting  of  all  of  the  business  concerns  in  the 
city  which  would  receive  a  direct  benefit,  such  as  the  hotels,  restaurants, 
theatres,  and  certain  classes  of  stores.  At  this  meeting  promote  the  idea 
of  organizing  a  convention  bureau,  either  as  a  separate  organization  or  as 
a  department  of  the  city's  commercial  organization.  Both  plans  are  in 
use  and  both  have  proven  successful. 

Secure  the  agreement  of  as  many  of  those  present  in  your  meeting  as 
possible  to  become  members  of  such  an  organization.  Organize  a  mem- 
bership campaign  and  secure  as  many  members  as  possible  from  those 
directly  interested.  Leave  the  other  business  interests  of  the  community 
for  later  campaigns.  Their  memberships  will  be  harder  to  secure  than 
the  others  and  it  will  make  the  work  much  easier  when  the  organization 
has  secured  two  or  three  conventions. 

Much  better  success  will  be  had  in  the  organization  if  a  paid  secre- 
tary is  employed  for  his  full  time  to  conduct  this  work.  Where  the  bu- 
reau is  made  a  department  of  the  commercial  organization  and  the  gen- 
eral secretary  of  that  body  is  also  the  secretary  of  the  bureau,  it  is  im- 
possible for  him  to  give  the  time  and  attention  to  the  work  as  could  a 
man  who  has  nothing  else  to  do.  This,  however,  depends  altogether  upon 
the  amount  of  finances  secured  to  operate  the  bureau. 

After  the  secretary  is  selected,  his  first  work  is  getting  a  line  on 
conventions.  Under  the  article  "How  to  Secure  Conventions  by  the  Letter 
Campaign"  this  information  is  given.  The  secretary  should  build  up  his 
convention  data  files  and  card  index  systems  in  such  a  way  as  to  be  able 
to  give  at  a  moment's  notice  the  names  of  conventions,  the  names  and 
addresses  of  the  officers,  the  place  of  meeting,  not  only  of  the  current  year, 
but  for  several  years  previous,  for  the  choice  of  a  convention  city  for  the 


54  City  Building 


next  meeting  place  depends  largely  upon  where  the  convention  has  been 
entertained  for  several  years  previous.  These  files  should  also  include 
the  dates  of  holding  the  conventions,  what  the  entertaining  cities  did  for 
them,  the  number  of  delegates  attending  in  different  years,  the  manner 
in  which  the  choice  of  next  meeting  place  is  to  be  decided,  whether  by 
the  convention  as  a  whole  or  by  a  committee,  and,  if  by  a  committee,  the 
names  and  addresses  of  the  committee  for  the  current  year,  and  other 
data  which  will  keep  the  officers  of  the  bureau  thoroughly  posted  con- 
tinually as  to  what  is  going  on  in  the  convention  world.  To  secure  a  com- 
plete file  of  this  character  it  will  take  several  years,  and  even  then  it  is 
being  added  to  continually.  But  the  start  must  be  made.  A  prolific  source 
of  this  information  will  be  found  in  a  subscription  to  one  or  more  recog- 
nized press  clipping  bureaus. 

The  various  forms  of  advertising  of  the  city's  advantages  which  are 
to  be  used  during  convention  campaigns  must  be  decided  upon- and  made 
ready  for  distribution.  The  number  and  character  of  these  is  only  lim- 
ited by  the  capacity  of  the  secretary  and  the  members  of  the  bureau. 

Various  methods  of  financing  such  a  bureau  are  in  use.  Some  of 
them  are  based  entirely  upon  a  membership  plan,  while  others  are  de- 
pendent exclusively  upon  subscriptions  of  the  business  interests  of  the  city, 
and  still  others  are  a  combination  of  the  two. 

Perhaps  one  of  the  best  methods  is  the  assessment  plan.  Member- 
ships in  the  bureau  are  secured  and  these  memberships  are  rated  accord- 
ing to  the  amount  of  direct  benefit  to  each.  An  assessment  sufficiently 
large  to  begin  the  work  of  the  bureau  is  made.  When  this  fund  is  ex- 
hausted, additional  assessments  are  levied,  and  so  on  throughout  the  year. 
Of  course,  the  Board  of  Governors  or  Directors  are  a  check  on  what  this 
annual  amount  will  be  and  also  the  capacity  of  the  members  themselves 
to  contribute  will  also  perform  an  automatic  check  upon  the  amount  at 
revenue  which  can  be  secured. 

When  the  bureau  is  organized  and  the  finances  secured,  then  the  suc- 
cess of  the  organization  in  securing  conventions  and  tourist  travel  for  the 
city  is  only  dependent  upon  the  advantages  which  the  city  possesses  and 
the  industry  and  energy  displayed  by  the  bureau  and  its  officers  in  giv- 
ing publicity  to  these  advantages. 


Conventions  55 


VI 
How  to  Entertain  Conventions 


The  majority  of  American  cities  have  placed  the  ban  on  the  bonus- 
hunting  industry,  those  concerns  which  come  into  a  city  and  stay  long 
enough  to  secure  the  gift,  and  then  hie  away  to  some  other  place  which 
is  offering  them  other  gifts.  As  this  has  been  done  in  this  branch  of  city 
building,  just  so  are  the  cities  fast  coming  to  the  conclusion  that  the  con- 
vention to  secure  and  entertain  which  entails  a  great  financial  burden; 
upon  the  commuDity  is  not  desirable,  but  to  the  contrary,  unwelcome. 

To  quote  on  this  point  Milton  Carmichael,  Secretary  of  the  Detroit 
Convention  and  Tourist  Bureau,  an  authority  on  convention  matters:  "I 
would  advise  any  city  to  reduce  the  entertainment  feature  to  the  point 
where  it  is  not  burdensome.  More  than  once  I  have  heard  delegates  remark 
that  they  did  not  care  to  accept  an  invitation  from  some  city  because  so 
much  entertainment  was  promised  that  the  delegates  in  attendance  would 
have  no  time  for  the  transaction  of  business,  or  seeing  points  of  interest 
in  their  own  way." 

"By  pursuing  this  policy,  you  will  see  the  handling  of  conventions 
becomes  an  incidental  matter.  The  expense  has  been  reduced  four-fifths 
and  the  work  nine-tenths.  A  convention  that  costs  more  to  entertain 
than  it  is  worth  is  the  one  to  let  some  other  city  have.  The  convention 
whose  officers  drop  in  with  the  suggestion  that  they  will  meet  in  your 
city  if  you  will  advance  a  cash  sum  sufficient  to  take  care  of  their  year's 
maintenance  and  hire  office  help  at  its  general  headquarters  is  another 
convention  that  it  is  well  to  let  go  to  another  city." 

There  are  a  number  of  conventions  which  will  come  to  you  for  an 
up-set  price,  and  there  are  others  which  do  not  ask  for  a  price,  but  in- 
stead certain  forms  of  entertainment  which  are  nearly  as  burdensome. 
Both  of  these  classes  should  be  discouraged  as  far  as  possible,  and  by 
concerted  action  along  this  line  this  habit  can  be  broken  up  entirely. 

Whatever  entertainment  is  provided  by  a  city,  it  should  not  conflict 
with  the  work  of  the  convention.  A  program  of  events  should  be  worked 
out  by  the  entertainers  and  the  officers  of  the  convention.  In  this  way 
conflicts  can  be  entirely  avoided. 

In  the  first  place,  convention  delegates  will  appreciate  it  if  they  are 
met  by  a  committee  of  your  townsmen  upon  entering  the  city.  This  af- 
fords a  splendid  opportunity  for  the  distribution  of  special  advertising 
matter  concerning  the  city,  points  of  interest  in  and  about,  and  side  trips 
which  can  be  easily  made,  and  directions  how  to  go.  Many  cities  have  a 
special  booklet  for  such  distribution  containing  the  foregoing  matter  and 
such  additional  information  as  the  legal  taxi  or  cab  fares,  the  cost  of  side 
trips,  the  principal  hotels  and  their  rates,  and  other  similar  matter. 

It  is  altogether  proper  for  your  citizens  to  have  a  committee  to  wait 
upon  the  convention  throughout  its  sessions,  to  be  ever  ready  to  assist  in 
the  expeditious  conduct  of  business,  and  to  be  walking  bureaus  of  in- 
formation. The  members  of  this  committee  should  wear  badges  which 
should  indicate  the  capacity  in  which  they  are  acting.     The  co-operation 


56  Ctty  Building 


of  your  police  department  will  greatly  assist  in  giving  delegates  informa- 
tion. 

It  may  be  impractical  for  delegates  to  make  certain  side  trips  to 
points  of  interest  because  of  conflict  with  convention  sessions.  In  that 
event,  it  is  proper  to  arrange  special  transportation  accommodations,  but 
have  it  understood  that  each  delegate  is  expected  to  pay  his  own  way. 

A  banquet  can  be  arranged  at  which  the  delegates  will  be  the  guests 
of  honor  and  made  to  know  that  they  are  welcome.  Usually  at  the  open- 
ing session  of  the  convention  an  address  of  welcome  is  given  by  some  local 
celebrity  as  the  Mayor,  President  of  the  Commercial  Organization,  or  some 
other  representative  person.  This  address  is  usually  responded  to  by  the 
president  of  the  convention,  and  then  the  delegates  get  down  to  business. 

Entertainment  largely  depends  upon  the  character  of  the  conven- 
tion. More  and  more  are  delegates  bringing  their  wives  and  children  with 
them  and  are  making  the  trip  a  sort  of  vacation  period.  In  such  cases 
particular  attention  should  be  paid  to  these  visitors  who  are  not  delegates. 
Arrangements  should  be  made  so  that  they  will  be  able  to  see  the  most 
in  the  least  time  and  in  the  most  satisfactory  manner  while  the  delegates 
are  busy  at  work.  In  the  case  of  fraternal  conventions,  it  is  fast  growing 
to  be  the  habit  of  the  local  lodges  to  hold  receptions  and  other  evening 
functions  for  the  entertainment  of  their  guests. 

The  matter  of  decorating  the  city  in  honor  of  the  convention  depends 
largely  upon  the  size  arid  character  of  the  convention.  Most  of  the  busi- 
ness houses  of  aDy  city  have  their  stock  of  decorations,  consisting  mainly 
of  flags  and  bunting,  and  it  will  be  very  little  expense  to  them  to  put 
them  up  during  the  convention  period.  There  is,  perhaps,  nothing  that 
will  make  such  a  showing  as  such  a  method  of  entertainment  and  consid- 
ering the  relatively  small  expense,  it  is  very  satisfactory. 

Many  delegates  desire  to  take  their  own  time  for  sight-seeing  and 
pleasure-seeking.  The  entertainment  should  be  so  arranged  as  to  provide 
for  rest  and  relaxation. 

The  convention  question  is  a  problem  and  success  can  only  be  attained 
by  watching  the  methods  of  other  cities  to  which  conventions  go. 


Extension  of  Retail  Trade 57 

CHAPTER  5 

EXTENSION  OF  RETAIL  TRADE 


How  to  Conduct  A  Shopping  Carnival 

Practically  every  retail  store  has  two  periods  during  the  year  when  it  con- 
ducts clearance  sales. 

The  commercial  organization  can  co-operate  with  the  retailers  for  the  pur- 
pose of  moving  quickly  this  dead  or  surplus  stock  by  conducting  Shopping  Car- 
nivals. The  retailers  are  members  of  the  commercial  body  and  the  affair  can 
be  conducted  by  that  organization  with  much  less  trouble  than  otherwise. 

The  keynote  of  a  successful  Shopping  Carnival  is  co-operation — the  keynote 
of  all  successful  public  work.  The  retail  establishments  sign  an  agreement  to 
hold  their  clearance  sales  during  the  same  period  of  two  weeks'  duration. 

The  merchants  also  pledge  small  subscriptions  of,  say,  $10.  Rating  the 
merchants,  charging  some  more,  and  others  less,  according  to  the  size  of  their 
establishments  and  the  volume  of  business,  is  often  done.  These  funds  pay  for 
the  co-operative  advertising  of  the  Shopping  Carnival. 

This  money  is  used  in  attracting  out-of-town  trade.  The  usual  forms  which 
this  publicity  takes  is  display  space  in  the  surrounding  country  newspapers,  post- 
ers for  billboard  advertising  and  personal  letters. 

The  country  newspapers  usually  give  special  rates  on  this  copy.  A  careful 
selection  of  papers  is  made  in  those  sections  which  it  is  believed  will  yield  the 
greatest  amount  of  results. 

The  posters  can  be  purchased  and  put  up  for  from  five  to  twelve  cents  a 
sheet.  This  form  of  advertising  will  be  found  very  effective.  Half  sheet  cards 
or  muslin  banners  can  also  be  used  to  advantage  on  fences,  bridges,  trees,  and 
other  places  along  the  roads  leading  into  the  city. 

The  personal  letter  will  probably  bring  more  business  than  any  other  one 
advertising  medium.  A  good  mailing  list  can  be  secured  from  telephone  direc- 
tories of  the  surrounding  counties.  Such  a  mailing  list  is  not  only  alive  and 
up-to-date,  but  it  also  puts  you  in  touch  with  the  best  people  in  the  community. 
Too  much  attention  cannot  be  given  to  the  letters  in  making  them  really  per- 
sonal. Modern  office  equipment  has  reached  the  stage  today  when  circular  let- 
ters, filled  in  with  name  and  address  and  salutation,  cannot  be  distinguished 
from  the  really  dictated  letter.  The  letter  should  extend  a  cordial  invitation  to 
visit  the  city  and  dwell  upon  the  advantage  of  the  co-operative  sales  for  making 
purchases  throughout  the  household.  Pieces  of  advertising  matter  may  also  be 
enclosed. 

The  value  of  the  letter  is  that  it  makes  a  personal  appeal  which  is  hard  to 
resist  and,  the  better  the  letter  writer,  the  stronger  is  this  appeal.  The  average 
city  man  receives  a  considerable  amount  of  mail  and  to  him  the  circular  letter 
does  not  appeal,  but  in  the  smaller  communities  and  the  rural  districts,  where 
these  letters  go,  the  people  receive  comparatively  little  mail  and  everything  with 
Uncle  Sam's  postmark  is  given  sufficient  attention  for  its  message  to  be  under- 
stood. 

For  protection  to  those  merchants  who  put  up  the  money  to  finance  the 
Shopping  Carnival,  all  advertising  matter  should  call  attention  to  some  sign  or 
decoration  of  these  stores  to  distinguish  them  from  the  others.     A  good  plan 


58  City  Building 


is  to  call  all  such  Red  Spot  stores.  Each  hangs  in  the  windows  large 
round  red  bristol  boards  with  the  words  "we  are  members  of  the  Shopping  Car- 
nival" printed  upon  them.  These  cards  should  be  as  large  as  possible  to  attract 
attention. 

Every  merchant  in  the  city  should  be  given  the  opportunity  to  go  into  the 
Shopping  Carnival.  Some  of  those  who  decline  will  object  to  the  designating 
of  stores  by  special  signs  or  decorations,  but  to  the  merchant  who  puts  up  thq 
money  to  advertise  his  business  belongs  the  trade. 

The  Shopping  Carnival  brings  the  merchants  closer  together  and  shows 
them  the  value  of  co-operation.  Many  cities  are  found  whose  merchants  are 
afraid  of  each  other  and  are  constantly  looking  out  for  some  one  of  their  corrt- 
petitors  to  "put  something  over"  on  them,  but  after  one  Shopping  Carnival  has 
been  successfully  conducted  in  the  community,  the  merchants  begin  to  realize 
that  they  are  all  after  the  same  thing,  more  business,  and  that  by  co-operation 
each  can  secure  greater  and  better  results. 

The  Shopping  Carnival  affords  all  of  the  merchants  a  great  opportunity  to 
clean  up  their  stocks.  With  just  one  concern  conducting  a  clearance  sale  at 
some  particular  time  the  out-of-town  customer  is  not  so  apt  to  be  attracted 
as  when  he  is  able  to  buy  all  kinds,  classes  and  assortments  of  goods  on  t!he 
same  trip  for  the  same  railroad  fare.  This  feature  is  by  far  the  strongest  talk- 
ing point  in  the  Shopping  Carnival  advertising  matter. 

Another  feature  of  the  Shopping  Carnival  is  the  minimum  amount  of 
expense  chargeable  to  each  participating  merchant.  If  a  merchant  holds  his 
sale  independently  of  the  others,  his  advertising  bills  will  amount  to  a  tremend- 
ous sum  in  comparison  to  his  contribution  to  the  fund  to  finance  the  Shopping 
Carnival. 

If  the  merchants  will  all  agree  to  make  a  certain  reduction  in  prices  for  the 
clearance  period,  the  Shopping  Carnival  will  attract  more  attention. 


Extension  of  Retail  Trade  59 


II 

How  to  Conduct  a  Refund  of  Fare  Campaign 


Like  the  Shopping  Carnival  the  success  of  the  Refund  of  Fare  Campaign 
depends  upon  the  co-operation  secured.  Most  of  the  cities  have  experienced 
difficulty  in  finding  a  plan  which  will  give  the  purchaser  the  minimum  of  trouble 
and  yet  protect  the  merchants  from  giving  the  benefit  of  the  campaign  to  those 
who  do  not  deserve  it. 

The  purpose  is  simply  to  put  the  out-of-town  buyer  on  the  same  basis  as 
the  home  buyer.  The  merchants  agree  to  refund  the  amounts  paid  by  out-of- 
town  customers  for  their  transportation  tickets.  From  each  of  these  merchants 
a  small  sum  of  money  is  collected  to  be  used  in  advertising.  Application  to 
the  agents  of  the  steam  roads  and  interurban  lines  is  made  for  a  list  of  all 
stations  and  stops  on  their  respective  lines  within  a  certain  radius  of  the  city. 

The  agents  are  also  asked  to  furnish  the  mileage  from  each  station  and 
the  round  trip  fare.  The  stations  on  all  lines  are  arranged  in  alphabetical  order 
in  one  list.  The  percentage  of  refund  on  purchases  is  then  fixed.  The  usual 
amount  is  five  per  cent.  In  compiling  the  list  of  stations  three  columns  are  used. 
The  first  column  gives  the  stations,  the  second  column  the  round  trip  fare,  and 
the  third  column,  amount  of  purchase  necessary  to  obtain  the  refund  of  the 
round  trip  fare. 

This  list  forms  a  part  of  the  Refund  of  Fare  Check  Book.  The  first  part  of 
the  book  contains  instructions  to  the  visitor  and  the  merchants.  Next  follows 
a  list  of  the  merchants  who  are  members  of  the  Refund  of  Fare  Campaign,  then 
the  list  of  railroad  stations  to  which  the  refund  of  fare  applies.  Blank  spaces* 
for  the  signatures  of  merchants  selling  and  the  amount  of  purchase  from  each 
follows.  The  book  is  closed  with  a  recapitulation  giving  date  of  purchase, 
name  of  purchaser,  his  address,  the  amount  of  refund  and  the  name  of  the  mer- 
chant refunding.  When  a  sufficient  amount  of  purchases  has  been  made  to 
allow  the  refund  from  the  customers'  station  to  the  city  and  return,  the  last  mer- 
chant selling  takes  up  the  book  and  refunds  in  cash  the  amount  required  as 
found  in  the  alphabetical  list  of  stations.  The  Refund  of  Fare  Book  then  be- 
comes the  merchant's  receipt  for  the  amount  of  money  paid  out  by  him  to  any 
customer. 

After  the  campaign  closes  an  auditing  committee  collects  and  checks  over 
the  books  and  prorates  to  each  merchant  the  money  due  him  for  the  excels 
which  he  paid  out  or  collects  from  him  the  deficit  which  he  owes. 

These  Refund  of  Fare  Check  Books  should  be  placed  in  the  hands  of  cus- 
tomers before  they  reach  the  city,  if  possible.  If  the  personal  letter  campaign  is 
used  as  suggested  in  the  Shopping  Carnival  plan  a  book  can  be  enclosed  in 
each  letter.  The  railroads  will  distribute  to  their  agents  a  supply  of  these  books 
to  be  given  to  customers  when  they  purchase  round  trip  tickets.  All  advertising 
matter  should  state  that  the  agents  have  the  books  and  a  customer  receives  one 
on  request. 

On  the  cover,  a  space  is  provided  in  which  the  railroad  station  stamp  is  put 
by  the  agent.  This  is  prima  facie  evidence  that  the  book  was  issued  at  the 
point  stamped  on  the  cover. 


60  City  Building 


Some  instructions  to  the  visitor  which  should  not  be  overlooked  are,  that  he 
should  present  to  or  ask  the  Refund  of  Fare  Check  Book  from  his  station 
agent  and  have  him  stamp  the  same  with  the  railroad  stamp  in  the  place  pro- 
vided for  that  purpose  on  the  cover;  that  the  book  must  be  presented  to  eVery 
merchant  from  whom  the  customer  makes  a  purchase ;  that  the  customer  should 
see  that  the  merchant  places  his  name  and  the  full  amount  of  purchase  in  the 
place  provided;  that  the  last  merchant  from  whom  the  customer  purchases 
goods  will  refund  to  him  in  cash  his  fare  and  that  this  merchant  will  take  up 
the  Check  Book. 

The  merchant  is  instructed  to  see  that  each  book  is  properly  issued ;  to  not 
fail  to  write  his  firm  name  and  full  amount  of  purchase  in  the  place  provided;- 
if  he  is  last  merchant  selling  customer,  to  total  purchases  made  from  all  mer- 
chants; to  see  if  this  total  is  equal  or  more  than  minimum  required,  which  he 
will  ascertain  in  the  third  column  opposite  the  customer's  railroad  station ;  to 
see  that  the  total  of  all  purchases  is  sufficient  to  reach  the  minimum,  in  which 
event  he  shall  refund  in  cash  the  round  trip  fare  found  in  column  two ;  to  have 
the  customer  sign  his  name  and  address  in  the  space  provided  and  to  take  up  the 
book  after  refunding  the  fare. 

It  will  be  noticed  that  the  last  merchant  selling  customer  requires  the  cus- 
tomer to  sign  his  name  and  address.  The  purpose  of  this  is  to  obtain  a  list  of 
out-of-town  customers  who  have  taken  advantage  of  the  Refund  of  Fare  Cam- 
paign. Such  a  list  is  the  property  of  participating  merchants  and  after  the 
campaign  closes,  copies  of  the  list  are  sent  to  each  merchant  for  his  use  in  send- 
ing out  additional  or  special  advertising  matter  which  he  cares  to  circulate  with 
reference  to  his  business. 

Another  instruction  which  is  usually  not  printed  in  the  Refund  of  Fare- 
Check  Book  but  which  is  understood  among  all  participating  merchants,  is  that 
each  merchant  has  the  right  to  issue  upon  his  own  authority  the  Refund  of 
Fare  Check  Book  to  customers  whom  he  knows  live  in  some  other  place  and 
justly  entitled  to  the  benefit  of  the  refund  of  fare. 

The  campaign  as  outlined  above  has  been  tried  out  in  a  number  of  places 
and  has  always  proven  successful  for  the  protection  of  all  parties  concerned. 


Extension  of  Retail  Trade 61 

III 

The  Efficacy  of  Co-operative  Advertising  in  New  Territory 


This  article  treats  the  subject  from  the  viewpoint  of  the  extension  of  retail 
trade  into  the  surrounding  country  by  the  retail  merchants  of  a  city.  The  argu- 
ments used  will  also  apply  to  the  other  branches  of  publicity  which  is  given  a 
city.  The  meaning  intended  to  be  conveyed  by  co-operative  advertising  is 
where  the  advertising  fund  is  raised  by  many  different  interests  and  spent 
through  one  management  for  one  purpose. 

This  form  of  advertising  is  good  because  it  secures  the  largest  appropria- 
tion for  publicity  at  the  least  individual  expense.  The  small  sum  of  ten  dollars 
from  each  one  of  a  hundred  retail  merchants  in  a  city  will  give  a  fund  of  one 
thousand  dollars  to  be  used  to  propagate  a  special  object.  Hardly  is  there  a 
merchant  who  will  refuse  to  pay  this  small  subscription  to  be  a  party  to  a  large 
total  sum  spent  to  advertise  the  city  in  which  he  is  doing  business  and  especially 
when  that  advertising  is  used  to  benefit  his  own  particular  business. 

What  could  that  one  merchant  do  in  the  way  of  giving  his  business  publicity 
with  that  lone  ten  dollars?  He  could  not  oven  do  the  hundredth  part,  the  per- 
centage of  the  whole  which  his  subscription  represents ;  he  could  not  cover  even 
one  small  district  of  outside  territory.  About  the  best  he  could  do  would  be 
to  distribute  three  or  four  thousand  circus  hand-bills  in  his  home  city.  On  the 
other  hand,  he  is  able  along  with  the  other  ninety-nine  merchants  to  cover  the 
territory  outside  the  city  for  a  radius  of  fifty  miles  or  so  thoroughly. 

A  few  figures  will  help  to  elucidate  this  point.  Take  the  personal  letter 
method  of  advertising  a  co-operative  sale  similar  to  the  Shopping  Carnival  dis- 
cussed recently  in  this  series.  The  lone  merchant's  ten  dollars  would  purchase 
postage  for  five  hundred  letters,  but  it  would  leave  nothing  with  which  to  buy 
the  stationery  or  write  the  letters.  In  the  co-operative  fund,  if  all  of  the  money 
is  spent  in  this  form  of  advertising,  he  is  able  with  the  rest  to  send  out  33,500 
letters  personally  addressed  and  signed. 

With  his  single  ten  dollars,  this  merchant  can  purchase  and  have  posted  one 
hundred  sheets  of  poster  paper.  As  a  part  of  the  co-operative  fund,  his  money 
does  its  share  to  put  out  10,000  sheets  of  paper,  which  would  be  a  big  billing  for 
a  tremendous  circus. 

If  circulars  were  used  and  sent  to  their  destination  through  the  mails,  his 
ten  dollars  would  hardly  distribute  700,  while  with  the  co-operation  of  his 
fellow-merchants  the  total  would  be  70,000  and  more  because  in  larger  quantities 
the  cost  of  printing  is  reduced  materially.  The  cost  of  clerical  work  is  also 
greatly  reduced. 

In  case  display  space  in  country  newspapers  was  used,  the  single  merchant 
could  buy  about  one  hundred  inches  of  space  for  one  issue,  but  the  co-operative 
fund  would  be  able  to  purchase  all  of  the  space  in  several  newspapers  for  one 
weekly  issue.  With  flyers,  the  long  streamers  so  often  seen  in  railroad  stations 
advertising  reduced  rates  to  certain  points  for  some  special  event,  this  mer- 
chant could  buy  about  5,000  of  them.  The  other  way  he  could  help  purchase 
1,000,000. 

It  can  be  said  that  what  the  merchant  does  alone  advertises  his  own  busi- 
ness and  his  only.    This  is  probably  the  manner  in  which  he  should  do  his  local 


62  City  Building 


advertising.  The  co-operative  fund  is  not  used  for  local  publicity  but  for  circu- 
lation outside  of  the  city  to  new  territory,  territory  which  the  merchant  alone 
could  not  reach  at  all  without  the  expenditure  of  large  sums  of  money. 

It  is  from  such  territory  that  the  average  merchant  must  look  for  the  great 
increase  in  his  business.  The  increase  in  population  in  his  own  city  will  give 
him  a  certain  growth,  but  he  would  not  be  content  with  this,  so  he  must  make  his 
best  efforts  to  draw  trade  from  this  new  territory. 

An  example  of  the  efficacy  of  co-operative  advertising  in  new  territory  is  to 
be  seen  in  the  retail  market  of  Lexington,  Ky.  Three  years  ago  the  plan  was 
first  tried.  A  fund  of  a  thousand  dollars  was  raised  and  spent  in  newspapef 
advertising,  personal  letters,  circulars  and  road  cards.  The  territory  into  which 
this  matter  went  was  some  twenty  counties  outside  of  the  home  county.  The 
participating  merchants  wore  smiles  for  months  because  of  the  increased  busi- 
ness. Since  that  time  the  plan  has  become  established  and  now  it  is  used  during 
every  special  event  occurring  in  the  city,  such  as  the  Spring  and  Fall  race  meet-* 
ings,  the  Fall  Trots,  the  Blue  Grass  Fair  and  other  periods.  Today  the  Lexing- 
ton market  is  known  as  the  Retail  Market  of  Central  Kentucky  and  the  out-of- 
town  business  is  estimated  to  be  sixty-five  per  cent  of  the  total  of  retail  sales. 
The  new  territory  has  been  gradually  increased  until,  now  trade  is  attracted  to 
the  city  from  some  points  more  than  a  hundred  miles  distant. 

Although  co-operative  advertising  is  generally  used  to  push  some  special 
campaign  or  event,  it  makes  the  city's  market  better  known  and  during  the  off- 
periods  more  or  less  trade  is  attracted  to  the  city  by  that  publicity.  If  it  is  a 
good  proposition  to  keep  the  name  and  advantages  of  a  city  in  general  before 
the  nation's  public,  why  is  it  not  just  as  important  to  keep  the  city's  retail  mar- 
ket before  the  public  of  that  territory  from  which  that  city  should  attract  trade? 

Co-operative  advertising,  so  far  as  the  retail  interests  are  concerned,  is  the 
most  effective  way  in  which  to  cover  new  territory,  to  give  thorough  publicity 
to  some  coming  event,  to  bind  the  merchants  closer  together  and  to  do  the  work 
at  a  minimum  of  expense. 


Extension  of  Retail  Trade  63 


IV 
Celebrations,  Pageants,  and  Similar  Shows  are  Good  Trade  Getters 


The  retail  merchants  of  many  cities  have  realized  the  fact  that  in  order  to 
increase  the  number  of  out-of-town  customers,  they  must  give  them  some  addi- 
tional attractions  to  draw  them  into  the  city  besides  the  bargains  upon  thdir 
shelves.  The  result  has  been  the  promotion  of  expositions,  celebrations  of  an 
historical  character,  pageants,  aviation  meets  and  the  like.  These  are  financed 
by  the  business  interests  of  the  city.  Most  cities  are  using  every  excuse  avail- 
able upon  which  to  hang  an  advertising  campaign. 

Only  recently  Pine  Bluff,  Arkansas,  installed  ornamental  street  lighting  in 
the  business  section  of  the  city.  When  this  system  of  lighting  was  finished,  a 
"White  Way  Day"  was  held  to  celebrate  the  installation.  An  aviation  meet  was 
held  during  the  afternoon  and  at  night  the  lights  were  turned  on  for  the  fir^t 
time  with  an  appropriate  ceremony.  The  affair  was  advertised  throughout  the 
surrounding  country  of  trade  territory,  tributary  to  that  city.  The  scheme  re- 
sulted in  bringing  many  thousand  visitors  in  for  the  day. 

Many  places  conduct  exhibitions  at  stated  times  during  the  year  which  are 
indicative  of  their  resources,  habits,  or  customs.  A  spectacle  of  this  character 
which  has  grown  to  national  importance  is  "Frontier  Days,"  held  every  August 
in  Cheyenne,  Wyoming.  This  celebration  is  most  unique  and  attractive.  The 
participants  are  cowboys  and  Indians  and  the  programme  consists  of  exhibitions 
of  riding  bucking  bronchos,  racing,  roping,  or  lariat  throwing,  rope  twirling  and 
expert  horsemanship.  Council  Bluffs  makes  use  of  carnivals  to  raise  money  to 
finance  various  enterprises  of  its  Commercial  Club. 

The  holding  of  a  corn  show  not  only  gains  the  interest  of  the  rural  com- 
munity, but  also  does  much  to  increase  the  corn  crop.  One  way  in  which  tihe 
corn  show  can  be  made  to  yield  direct  returns  to  the  merchants  is  to  secure 
purses  for  prizes.  During  the  period  of  holding  the  corn  show,  the  merchants 
put  on  a  sale  which  is  advertised  on  the  co-operative  advertising  plan.  The  ad- 
vertising is  done  through  the  medium  of  circulars  which  are  handed  out  in 
person  by  responsible  distributors  who  tour  the  country.  At  the  same  timq 
these  men  tie  yellow  tags  advertising  the  sale  on  fences,  trees,  and  other  points 
of  vantage  throughout  the  country.  The  yellow  tags  are  good  for  a  certain  dis- 
count in  the  purchase  of  articles.  After  the  prizes  have  been  awarded,  the  corn 
is  put  up  at  auction,  sold  to  the  highest  bidder  and  the  proceeds  devoted  td 
charity. 

In  Cincinnati  every  year,  they  hold  a  May  Festival  which  consists  di  am 
elaborate  musical  programme.  This  always  attracts  tremendous  crowds  d£ 
visitors.  In  Salt  Lake  City,  similar  attractions  are  held  periodically  and  large 
prizes  are  offered  for  competition  by  brass  bands,  orchestras,  singers,  orators 
and  chorus  clubs.  These  never  fail  to  bring  great  throngs  of  people  from  all 
over  the  intermountain  region.  In  nearly  every  community,  there  is  the  annual 
fair,  which  not  only  attracts  the  crowds,  but  also  stimulates  better  methods  in 
agriculture  and  stock  raising. 

Another  attractive  display  or  rather  exposition  on  a  small  scale,  can  be 
easily  worked  up  in  nearly  any  city.  This  is  the  "made  at  home"  show.  There 
is  hardly  a  city  but  what  has  some  industries  and  these  industries  will   quickly 


64  City  Building 


embrace  the  opportunity  to  advertise  their  wares  by  displaying  splendid  exhibits 
of  their  products  in  the  various  stores.  This  plan  has  the  attraction  of  not  only 
securing  buyers  but  also  advertising  goods  made  at  home.  Such  shows  are  par- 
ticularly good  at  the  opening  of  the  season  as  they  form  a  splendid  introduction 
of  the  season's  stock  of  goods.  The  pulling  power  of  all  these  shows  is  unique*-' 
ness.  Originality  and  attractiveness  spell  success  in  these  endeavors  as  they  do 
in  every  other  line  of  work. 

It  is  a  comparatively  easy  matter  to  conduct  such  ceilebrations.  Call  a  meet- 
ing of  the  business  interests  and  suggest  the  plan.  Some  one  will  surely  be 
able  to  suggest  some  historical  event  or  some  other  excuse  upon  which  to  hang 
the  show.  An  executive  committee  to  have  general  charge  of  the  affair  should 
be  appointed  and  this  committee  should  appoint  all  the  necessary  sub-com- 
mittees, the  number  of  which  will  depend  entirely  upon  the  size  of  the  exhibit. 
Some  person  should  be  made  the  general  manager  of  the  whole  affair. 

A  programme  of  events  should  be  made  up  and  this  will  give  the  financial 
budget  necessary  to  be  covered  in  order  to  hold  the  show.  The  estimate  of 
these  finances  should  be  made  to  cover  as  large  an  advertising  fund  as  possible. 
The  strongest  sort  of  a  publicity  campaign  should  be  made  throughout  the  terri- 
tory from  which  it  is  reasonable  to  expect  to  draw  a  crowd.  In  pushing  the 
publicity  campaign,  it  is  well  to  bear  in  mind  that  the  short  vigorous  campaign 
will  bring  greater  results  than  the  long,  drawn-out  campaign ;  for  it  is  very 
hard  to  sustain  publicity  upon  any  one  thing  for  a  long  period  of  time. 

Care  should  be  taken  to  have  all  arrangements  made  before  the  show  opens. 
In  case  it  is  a  paid  attraction,  ground-care-takers,  gate-keepers  and  all  other 
help  must  be  secured  and  attention  should  be  given  in  every  way  possible  to* 
the  comfort,  convenience  and  pleasure  of  the  patrons. 

The  more  ambitious  these  exhibits,  the  more  co-operation  can  be  secured 
from  the  transportation  lines  operating  in  and  out  of  the  city.  If  it  can  be 
shown  to  the  carriers  that  they  will  do  an  appreciable  amount  of  increased  busi- 
ness, they  will  co-operate  to  the  extent  of  granting  reduced  rates  for  th>>  events. 


Extension  of  Retail  Trade  65 


V 
Souvenir  Days  Make  People  Buy 


"Something  for  nothing"  has  never  failed  to  attract  attention.  It  is  eter- 
nally valuable  as  a  part  of  a  selling  campaign. 

For  extending  a  city's  retail  trade  territory,  the  giving  of  souvenirs  or 
premiums  can  be  made  very  efficacious.  The  plan  can  be  easily  adapted  to  large 
or  small  stores.  Where  a  number  of  stores  use  it  simultaneously,  it  can  be  made 
much  stronger.  A  good  plan  is  to  advertise  through  a  co-operative  publicity 
campaign  through  the  surrounding  territory  that  during  a  certain  period  of  time, 
ail  stores  co-operating  in  the  campaign  will  give  with  every  dollar  purchased,  a 
coupon  good  for  five  cents  toward  securing  a  souvenir  or  premium.  A  large 
number  of  these  souvenirs  or  premiums  valued  from  five  cents  each  up  to  any 
amount  which  is  desired  are  placed  on  display  in  some  central  part  of  the  city> 
Each  souvenir  is  duplicated  in  this  display  several  times  so  as  to  show  prospect- 
ive customers  that  they  have  several  chances  to  get  any  particular  souvenir  or 
premium.  The  souvenirs  are  all  marked  in  such  a  way  as  to  show  the  amount 
of  the  goods  necessary  to  be  purchased  in  order  to  secure  each  one. 

Each  coupon  shows  the  value  of  that  particular  coupon,  as  for  example,  a 
customer  making  a  dollar  purchase  will  receive  a  five-cent  coupon  and  a  cus- 
tomer purchasing  ten  dollars  worth  of  goods  will  receive  a  fifty-cent  coupon. 
These  coupons  are  made  and  redeemable  at  the  place  where  the  souvenirs  artf 
on  exhibition. 

This  plan  is  often  stimulated  by  advertising  that  on  a  certain  day,  usually 
the  opening  day,  a  large  number  of  paper  balloons  will  be  sent  up  from  thel 
various  stores.  To  each  balloon  is  attached  advertising  matter  and  a  coupon 
valued  at  one  dollar  which  will  be  redeemable  together  with  other  coupons  at  its; 
face  value. 

Another  plan  is  called  a  "give  away  sale."  All  sorts  of  articles  are  placed 
on  exhibition  in  a  central  place.  These  articles  are  properly  labeled  as  the 
ones  which  will  be  given  away  during  the  sale.  Each  store  contributes  a  num- 
ber of  articles. 

When  the  customer  purchases  goods  from  any  of  the  participating  stores, 
they  are  given  purchase  coupons  which  are  numbered.  Every  article  in  the  dis- 
play is  also  numbered.  The  person  holding  the  lucky  number  gets  the  article 
so  numbered  in  the  central  display. 

A  modification  is  to  number  the  advertising  circulars  which  are  sent  broad- 
cast through  the  surrounding  trade  territory  and  the  person  bringing  in  a  cir- 
cular bearing  the  number  of  any  article  in  the  display  of  "give-away  articles,", 
secures  the  article  so  numbered  without  any  additional  cost  to  him.  The  adver- 
tising circulars  contain  the  individual  advertisements  of  each  and  every  partici- 
pating store. 

Still  another  modification  is  where  each  merchant  retains  the  articles  which 
he  has  given  in  his  own  store,  places  his  own  numbers  on  them  and  has  his 
own  set  of  numbers  in  his  individual  advertisement  in  the  circular. 


66  City  Building 


Another  plan  which  has  for  its  value  uniqueness  is  to  advertise  thoroughly 
throughout  the  country  the  expression,,  "Button,  button,  who's  got  the  button?" 
A  little  later  thousands  of  celluloid  buttons  are  distributed  bearing  a  number 
and  also  the  dates  of  the  sale  period,  when  the  merchants  are  conducting  this 
particular  campaign. 

A  day  or  two  before  the  buttons  are  distributed,  thousands  of  pieces  o£ 
advertising  matter  are  sent  broadcast.  This  advertisement  carries  the  catch 
phrase,  "Button,  button,  who's  got  the  button?"  and  explains  the  meaning  of 
it;  that  the  buttons  will  be  distributed  in  a  very  short  time;  that  each  button 
will  be  numbered :  that  each  merchant  participating  in  the  campaign  has  a  num-} 
ber  of  articles  distributed  through  his  store  which  are  also  numbered,  and  that 
the  person  holding  a  button  with  the  same  number  as  on  any  of  the  articles, 
may  present  that  button  and  receive  the  article  free  of  all  cost  to  him. 

Another  plan  is  for  the  merchants  to  prescribe  that  during  a  certain  period 
of  time,  every  purchase  of  every  customer  on  one  certain  day  will  be  refunded. 
The  value  of  this  plan  is  that  it  has  an  element  of  mystery,  in  that  no  customer 
knows  what  day  the  amount  of  the  sales  will  be  refunded. 

An  auditing  committee  has  general  charge  of  the  entire  sales  period.  The 
advertising  campaign  is  conducted  in  like  manner  to  the  others.  The  merchant 
reports  each  day  to  the  auditing  committee  the  amount  of  his  sales.  Each  mer- 
chant takes  the  name  and  address  of  each  customer.  On  this  same  slip  is  listed 
the  total  amount  of  purchases  made  by  that  customer  in  that  store.  Each  mer- 
chant turns  over  to  the  auditing  committee  the  customers'  names  after  the  cam- 
paign closes.  The  auditing  committee  selects  that  day  of  the  period  when  the 
total  sales  amount  to  the  least  money  and  this  is  the  day  selected  when  all  cash 
sales  will  be  refunded. 

The  auditing  committee  notifies  each  participating  merchant  of  the  day  so 
selected  and  then  each  merchant  in  a  letter  addressed  to  the  customer  encloses 
•his  check  for  the  amount  of  the  customer's  sales  in  his  store. 

Instead  of  the  merchant  refunding  to  each  customer,  it  is  sometimes  found 
advisable  to  have  the  auditing  committee  mail  one  check  to  each  customer  to- 
gether with  a  letter  felicitating  him  upon  being  among  the  fortunate  ones.  The 
feature  of  this  modification  is  that  a  customer  purchasing  goods  from  a  number 
of  different  stores,  will  get  one  check  to  cover  the  total  amount  of  his  purchases. 
The  idea  prevailing  throughout  all  the  souvenir  or  premium  campaigns  is 
"Something  for  Nothing,"  which  has  never  lost  its  value,  but  rather  has  in- 
creased as  a  part  of  a  successful  selling  plan. 


Extension  of  Retail  Trade 67 

VI 
Trains  are  Packed  on  Inbound  Excursion  Days 


Wherever  conducted  inbound  trade  excursions  have  proven  successful  in 
increasing  retail  trade.  The  object  of  these  and  the  refund  of  fare  campaign 
is  to  put  the  out-of-town  customer  on  the  same  basis  as  the  city  resident. 

The  retailer  realizes  that  if  he  can  overcome  the  hesitancy  of  the  rural  resi- 
dent of  making  the  trip  to  the  city  he  will  be  able  to  secure  that  trade  because  of 
his  finer  and  larger  stock  of  goocjs. 

The  Merchants  Association  of  Indianapolis  conducts  a  strong  campaign  of 
this  character.  Of  course  Indianapolis  is  admirably  well  situated  for  the  success 
of  such  an  enterprise  because  of  the  large  number  of  traction  lines  which  radiate 
from  that  city.  Nevertheless  there  are  many  other  cities  in  the  country  which 
also  have  traction  lines,  but  this  mode  of  transportation  is  not  necessary  for  the 
success  of  inbound  excursions.  They  can  be  operated  .satisfactorily  upon  the 
steam  roads. 

The  Merchants  Association  of  Indianapolis  advertises  throughout  the  sur- 
rounding territory  that  certain  days  are  to  be  known  as  "free  excursion  days.", 
The  association  charters  special  cars  on  the  traction  lines  and  no  matter  what 
the  regular  fare  may  be,  that  fare  is  cut  to  ten  cents.  When  the  passenger1 
boards  the  car  at  any  place  along  the  line,  he  pays  his  ten  cents  to  the  conductor^ 
who  in  turn  gives  the  passenger  a  check,  or  receipt,  for  the  fare. 

When  the  customer  reaches  the  city,  he  presents  the  receipt  to  any  of  the 
stores  of  the  Merchants  Association,  who  will,  whether  or  not  any  purchases 
are  made  by  him,  refund  to  the  passenger  his  ten  cents. 

The  object  in  charging  anything  at  all  is  to  get  the  customer  into  the  store 
and  it  is  very  seldom  that  the  visitor  will  demand  the  return  of  his  ten  cents 
without  making  some  purchases. 

In  Erie,  Pennsylvania,  a  somewhat  similar  plan  is  conducted.  Here  it  is 
called  "suburban  day."  One  day  out  of  every  week  is  selected  as  "suburban, 
day."  The  principle  one  is  conducted  at  the  opening  of  the  "Fall  Style  Show." 
The  plan  is  conducted  by  the  commercial  organization.  The  merchants  meet 
every  week  at  a  luncheon  for  the  purpose  of  planning  the  events  of  the  pro- 
gramme for  the  next  week.  They  always  try  to  give  the  country  customers 
something  attractive  and  entertaining  each  week  in  order  to  draw  them  into  the 
city.  No  refunding  of  fares  is  done  like  the  Indianapolis  plan.  The  publicity 
throughout  the  surrounding  country  is  very  thorough. 

With  the  steam  roads,  it  is  a  little  more  difficult  to  conduct  inbound  excur- 
sions on  the  reduced  fare  plan.  It  can  be  done,  however,  by  getting  the  railroad 
lines  to  agree  to  carry  passengers  into  the  city  from  certain  points  without 
tickets.  The  conductors  record  the  number  of  passengers  so  coming.  The 
merchants  also  have  a  representative  to  check  the  conductor.  All  these  tickets 
are  paid  for  from  the  merchants'  co-operative  fund.  It  is  well  where  such  a 
campaign  is  new  to  try  out  one  section  of  territory  at  a  time.  Each  excursion 
will  give  many  valuable  suggestions  for  the  next  one. 

These  excursions  are  of  little  benefit  without  systematic  publicity.  This 
campaign  cannot  be  too  thorough.    By  this  expression  it  is  not  necessarily  meant 


68  City  Building 


that  the  publicity  should  be  general.  Every  effort  should  be  made  to  pick  the 
visitors.  This  is  done  by  special  invitations  sent  out  to  a  select  list.  Accom^ 
panying  these  invitations,  transportation  tickets  are  sent.  This  is  found  to  be, 
a  very  good  method  for  regulating  the  size  of  the  excursion.  One  objection  to 
this  plan  is,  that  it  is  very  easy  to  overlook  some  very  good  customers.  Every 
effort  should  be  made  to  compile  as  careful  a  list  as  possible.  A  large  number  of 
names  can  be  secured  from  the  various  merchants  themselves,  but  as  the  plan  is, 
to  secure  new  customers,  other  names  must  be  added  to  the  list.  A  very  satis- 
factory mailing  list  of  the  best  people  in  the  various  communities  and  rural  disT 
tricts  can  be  compiled  from  telephone  directories.  Other  names  can  be  added, 
from  the  county  assessment  rolls.  The  assessment  roll  gives  a  very  good  indica- 
tion of  the  worth  of  the  people  also. 

Most  cities  have  found  it  inadvisable  to  use  advertising  space  in  the  country 
newspapers,  for  the  reason  that  the  best  people  are  not  likely  to  take  advantage 
of  the  "free  excursion"  so  advertised.  The  plan  is  most  successful  when 
operated  as  nearly  exclusively  as  possible.  The  visitors  are  thus  made  to  feel 
that  their  invitations  are  personal  favors  from  the  merchants. 

In  summing  up  the  articles  on  the  extension  of  retail  trade,  there  is  one 
thought' which  stands  out  the  most  prominent  of  all.  It  is  vitally  neccessary  to 
have  the  co-operation  of  the  merchants.  The  old  fable  of  the  bundle  of  sticks 
is  most  applicable  in  this  case.  The  resources  of  the  individual  merchant  are| 
limited.  But  when  he  combines  his  effort  with  those  of  his  neighbors,  his  re- 
sources are  multiplied  many  times  over.  It  is  very  expensive  for  him  to  cover 
his  own  county  properly  with  his  advertising.  Yet  when  all  the  merchants  co- 
operate, they  are  able  to  cover  not  only  their  own  county  but  also  all  of  the 
territory  within  a  radius  of  fifty  or  more  miles.  It  is  true  that  when  the  mer- 
chant advertises  alone,  he  gets  the  whole  benefit  of  that  advertisement,  while 
in  the  co-operative  plan  he  takes  his  chances  on  securing  his  customers  from  all 
the  visitors  attracted  by  the  co-operative  advertising. 

The  co-operative  plan  therefore  is  not  recommended  so  much  for  local 
advertising  as  it  is  for  the  reaching  out  into  new  territory  for  new  trade. 


Extension  of  Wholesale  Trade 69 

CHAPTER  6 

EXTENSION  OF  WHOLESALE  TRADE 


How  to  Conduct  Trade  Excursions 

The  term  "Trade  Excursion"  is  used  to  denote  the  trips  which  many  com- 
mercial organizations  are  promoting  for  the  benefit  of  the  wholesale  and  job- 
bing interests  and  manufactories  in  the  extension  of  the  market  for  the  sale  of 
their  products. 

These  trips  bring  the  heads  of  houses  into  a  closer,  personal  touch 
with  their  customers.  Of  course,  the  customer  knows  the  traveling  repre- 
sentative and  is  on  a  cordial,  personal  basis  with  him,  but  ordinarily  he 
does  not  know  the  head  or  heads  of  the  concern  from  which  he  buys.  The 
trade  excursion  serves  as  the  medium  of  introduction  and  thereafter  the 
customer  naturally  takes  a  more  personal  interest  in  the  concern.  His 
business  will  be  that  much  harder  for  a  competitor  to  secure  and  the 
rule  proves  the  assertion  that  the  volume  of  his  former  orders  will  show 
a  material  increase. 

These  excursions  afford  an  excellent  opportunity  for  handling  cus- 
tomer's complaints.  They  serve  to  give  the  heads  of  houses  a  closer  in- 
sight into  the  character  and  conditions  surrounding  his  customers. 

They  have  great  value  as  a  means  of  developing  new  territory.  The 
wholesale  and  jobbing  interests  of  some  cities  have  been  more  than 
doubled  since  the  inauguration  of  these  trips.  A  body  of  business  men 
coming  into  a  city  by  special  train  cannot  help  but  force  attention  to  them- 
selves and  their  wares. 

The  trade  excursion  is  also  a  valuable  medium  for  giving  publicity 
to  a  city.  Stereopticon  and  moving  picture  outfits  are  frequently  car- 
ried and  lectures  given  explaining  the  advantages  and  resources  of  the 
city.  Pictures  of  the  various  wholesale  establishments,  manufactories, 
their  facilities  for  handling  business  with  dispatch  and  carefulness  and, 
the  kind  of  goods  handled  can  hardly  be  beat  for  selling  arguments. 

Among  those  cities  conducting  the  most  ambitious  of  the  trade  ex- 
cursions may  be  mentioned,  Chicago,  Omaha,  Salt  Lake  City,  and  Port- 
land, Oregon.  The  trips  taken  by  these  cities  and  others  are  of  several 
days  duration  and  cover  thousands  of  miles  of  territory.  They  travel  in 
their  special  train  of  Pullman  sleepers  and  carry  one  or  more  dining  cars. 
One  or  more  baggage  cars  are  also  a  part  of  the  train  equipment.  In  these 
are  stored  the  advertising  matter,  the  moving  picture  and  stereopticon 
apparatus,  samples  of  goods,  souvenirs  and  all  other  matter  which  is  to 
be  distributed. 

These  excursions  bring  the  heads  of  houses  closer  together.  They 
become  one  great  family  during  the  trip,  get  well  acquainted  and  learn 
thoroughly  the  value  of  co-operation.  Many  a  big  plan  for  city  advance- 
ment has  been  hatched  on  trade  excursions. 

Where  the  excursions  cover  a  large  territory,  they  are  promoted  once 
a  year.  A  number  of  cities,  however,  make  the  practice  of  cutting  the 
itinerary  up  into  sections. 


70  City  Building 


Instead  of  one  big  excursion,  several  are  run  of  from  one  to  three 
days  in  length.  It  is  claimed  for  this  method  that  the  men  do  not  gee 
as  weary  as  on  the  longer  trips  and  consequently  are  able  to  more  thor- 
oughly work  the  territory  visited. 

The  railroads  will  be  found  to  co-operate  liberally  with  the  promoters. 
They  will  give  low  rates  for  the  special  train.  The  usual  practice  with 
them  is  to  grant  a  low  round  trip  rate,  with  the  provison  that  a  minimum 
of  one  hundred  tickets  will  be  sold.  All  tickets  over  the  minimum  are 
sold  at  the  same  price,  the  additional  revenue  going  to  the  railroad. 

Where  dining  cars  and  sleepers  are  used,  either  one  of  two  methods 
are  in  use.  Either  the  railroad  furnishes  the  sleepers  and  dining  cars 
in  which  table  d'hote  meals  are  served  and  the  cost  of  these  accommoda- 
tions are  included  in  the  price  of  each  ticket,  or  the  railroads  furnish  the 
cars  which  are  chartered  by  the  promoters  at  a  set  figure  per  car  per  day 
and  the  promoters  in  turn  resell  the  berths,  stock  the  dining  car  and  serve 
meals   a  la  carte. 

There  are  many  instances  where  trade  excursions  for  a  single  day  are 
effectively  used,  and  a  number  of  them  conducted  during  the  year.  This 
plan  is  very  satisfactory  for  covering  nearby  territory.  They  are  also  much 
cheaper.  The  usual  equipment  for  the  train  for  a  one-day  trip  is  several 
day  coaches  and  one  or  more  baggage  cars.  A  very  good  way  with  such 
an  excursion  is  to  stock  a  portion  of  one  of  the  baggage  cars  with  provis- 
ions and  from  it  serve  a  lunch. 

Some  cities  conduct  one-day  excursions  on  their  interurban  lines. 
Advance  arrangements  are  made  for  the  meals  at  points  along  the  line. 

In  every  case  where  the  trade  excursion  is  conducted  a  thoroughly 
planned  publicity  campaign  is  propagated  before  the  excursion.  The 
heads  of  houses  furnish  the  promoters  with  a  list  of  their  customers  in 
the  territory  to  be  visited.  Additional  names  are  added  to  the  mailing  list 
from  all  available  sources.  Letters  are  sent  out  to  these  people  notifying 
them  of  the  visit. 

The  heads  of  houses  also  write  to  their  customers.  The  promoters 
very  often  make  a  special  trip  over  the  route  a  week  or  two  ahead  of  the 
excursion  for  the  purpose  of  making  arrangements  in  the  various  towns 
for  public  meetings  and  such  other  details,  besides  thoroughly  advertis- 
ing the  excursion  through  the  newspapers  of  the  towns  to  be  visited. 
This  always  proves  to  be  worth  the  additional  expense  in  securing  more 
publicity  and  attention  to  the  excursionists. 


Extension  of  Wholesale  Trade 71 

II 

How  to  Organize  and  Conduct  a  Credit  Association 


The  purpose  of  a  credit  association  is  to  protect  its  members  from 
fraudulent  persons,  to  secure  and  keep  reports  on  the  credit  of  individ- 
uals, firms,  and  corporations,  to  handle  collections  for  members,  and,  in 
short,  to  do  any  and  all  things  necessary  and  incident  to  the  establishment 
and  maintenance  of  files  of  credit  information  for  the  benefit  of  the  mem- 
bers of  the  association.  'Many  of  the  cities  conduct  such  associations  as 
a  department  of  the  commercial  organization  with  great  success.  Such 
a  system  is  of  comparatively  recent  origin,  however,  and  a  great  many 
cities  have  their  credit  associations  as  separate  and  distinct  organizations. 
They  are  many  times  incorporated  bodies,  organized  and  operated  by  one 
or  more  individuals  for  a  profit.  This  article,  however,  will  treat  of  the 
credit  association  as  a  mutual  proposition  and  as  a  department  of  the 
commercial  organization. 

Although  this  article  is  included  under  the  general  subject  of  "Ex- 
tension of  Wholesale  Trade,"  that  does  not  necessarily  mean  that  the 
wholesale  interests  of  a  community  are  the  only  interests  which  receive 
benefits  from  such  an  association.  To  the  contrary,  in  most  places  where 
the  credit  associations  exist,  the  retailer  receives  as  much  if  not  more 
benefit  than  the  wholesaler. 

To  organize  one,  an  agreement  is  secured  from  as  many  of  the  busi- 
ness institutions  of  a  city  as  possible  that  they  will  enter  into  such  an 
association  and  will  abide  by  the  rules  and  regulations  of  the  organiza- 
tion. They  agree  to  stand  their  pro  rata  share  of  the  expense  of  financing 
the  association  and  also  to  furnish  to  the  manager  any  and  all  information 
in  their  possession  concerning  their  customers  when  demanded  by  the 
manager.  Of  course,  this  information  is  strictly  confidential.  Even  one 
member  asking  for  credit  information  concerning  some  particular  person 
does  not  know  from  whom  that  information  comes.  Only  the  manager 
and  his  office  force  know  who  gives  it. 

The  best  man  for  the  position  of  manager  is  someone  who  has  had 
experience  in  securing  credit  reports  and  who  has  a  knowledge  of  the 
office  mechanism  of  a  credit  association.  However,  there  is  nothing  in  the 
business  which  requires  technical  training  as  in  the  case  of  a  traffic  expert 
for  handling  railroad,  matters. 

The  beginning  of  the  association's  work  is  rather  difficult.  A  vast 
deal  of  card  indexing  is  required  at  the  outset.  All  of  the  members  of  the 
association  are  requested  to  furnish  a  complete  list  of  their  credit  cus- 
tomers. On  this  list  are  also  included  notations  as  to  whether  each  cus- 
tomer is  excellent,  good,  fair,  slow,  very  slow  paying,  or  a  dead  beat;  also 
the  amount  of  heaviest  indebtedness  to  that  merchant  at  any  one  time, 
and  all  other  information  concerning  the  credit-standing  of  that  cus- 
tomer in  the  knowledge  of  the  merchant. 

All  of  this  information  is  transferred  to  a  card  index  system.  The 
cards  are  separated  in  two  classes — one  of  customers  of  retail  stores  and 
the  other  the  patrons  of  the  wholesale  establishments. 


72  City  Building 


With  the  installation  of  this  card  index  system  arranged  elphabet- 
ically,  the  association  is  ready  to  begin  furnishing  information.  A  mer- 
chant wishing  information  concerning  some  one,  calls  up  the  association. 
If  the  association  has  a  card  on  that  individual,  the  information  is  quickly 
given,  but  in  the  event  the  customer  is  a  new  resident,  it  will  require  a 
longer  time  to  secure  the  information. 

In  that  case  the  manager  will  ascertain  the  former  residence  of  the 
individual.  He  will  write  to  the  credit  association  in  that  other  commu- 
nity, receive  the  credit  standing  of  the  customer  there  and  give  the  in- 
formation to  the  merchant  making  the  inquiry.  At  the  same  time  the 
association  will  enter  that  report  upon  a  card  and  file  it  for  future  refer- 
ence. 

When  the  association  is  organized,  a  membership  in  the  National 
Association  of  Credit  Men  should  be  ^applied  for.  For  information  con- 
cerning people  or  business  firms  in  nearly  every  part  of  the  country  this 
membership  will  secure  it.  A  full  list  of  members  of  the  National  Asso- 
ciation is  filed  with  each  member  and  each  membership  entitles  the  holder 
to  the  privilege  of  exchanges  of  credit  information. 

Another  use  of  the  credit  association  is  for  the  collection  of  bad  bills. 
After  the  merchant  has  exhausted  the  resources  at  his  command  in  this 
direction  he  can  turn  over  to  the  association  the  claim  for  collection. 
The  association  has  the  right  to  go  to  any  legal  extremity  in  the  collec- 
tion of  the  bill.  When  the  claim  is  collected  the  association  remits  to 
the  merchant  the  amount  less  expenses  and  commission  which  goes  into 
the  general  maintenance  fund  of  the  association. 

The  association  also  issues  to  every  member  a  daily  report  of  the  fil- 
ing of  suits,  mortgages,  deeds  and  other  court  records  which  may  have  a 
bearing  upon  the  credit  standing  of  individuals  or  firms. 

After  the  association  has  been  in  existence  for  a  year  or  two,  its  files 
will  furnish  information  concerning  the  credit  of  nearly  every  individual 
in  the  community  and  nearly  every  business  concern  throughout  the  whole- 
sale trade  territory  tributary  to  the  city.  The  association  can  with  profit 
to  itself  issue  a  rate  book  in  which  is  shown  the  credit  rating  of  the  people 
whose  names  are  in  the  association  files.  Such  a  book  is  found  invaluable 
to  the  business  men  of  the  community  because  on  the  individuals  listed 
it  gives  information  of  similar  character  as  Dunn  or  Bradstreet's  reports 
on  business  enterprises. 

The  maintenance  of  a  crodit  association  will  not  be  found  to  be  costly 
in  comparison  to  its  value  in  the  protection  of  the  merchants  and  safe- 
guarding them  against  the  constant  danger  of  contracting  bad  debts. 


Extension  of  Wholesale  Trade  73 


III 
How  to  Increase  Market  by  Advertising  in  New  Territory 


Practically  every  wholesale  house  sells  its  wares  through  traveling 
salesmen.  Most  of  them  depend  entirely  upon  their  work  for  orders. 
Many  more  back  up  their  representatives  with  various  kinds  of  publicity 
campaigns,  the  most  familiar  of  which  is  the  follow-up  system  of  letters. 

In  using  this  method,  the  wholesale  house  writes  to  the  dealer  in  ad- 
vance of  the  traveling  man's  visit  notifying  them  that  their  Mr.  

will  call  on  them  on  or  about  a  certain  date  and  that  the  house  bespeaks 
for  him  attention  to  his  sample  line  of  goods.  If  the  house  is  introduc- 
ing some  new  brand  of  goods  to  the  trade,  the  letter  calls  particular  notice 
to  these  goods  in  such  a  manner  as  to  excite  the  curiosity  and  arouse  the 
interest  of  the  dealer  to  see  them. 

The  salesman  always  finds  a  more  cordial  reception  when  this  letter 
precedes  him  and  it  serves  to  show  the  customer  that  the  house  is  really 
after  the  business  and  that  his  orders  will  be  appreciated. 

When  the  salesman  sends  in  an  order,  the  house  at  once  writes  a 
letter  of  appreciation  to  the  customer.  If  an  order  does  not  come  in  from 
some  other  dealer  upon  whom  the  salesman  called,  the  salesman  in  his 
report  to  the  house  tells  why  he  did  not  get  the  order.  Then  the  house 
writes  to  that  dealer  giving  additional  selling  arguments,  straightening 
out  complaints  or  otherwise  covering  the  information  given  by  the  sales- 
man. 

In  a  short  time  a  second  letter  is  forwarded  to  the  dealer,  then  a 
third,  and  so  on  until  the  salesman  is  making  that  territory  again.  Again 
the  salesman  calls  and  he  will  find  a  more  cordial  reception  than  before. 
It  is  altogether  possible  that  by  reason  of  the  letters  from  the  house  the 
dealer  has  already  sent  in  an  order. 

Throughout  the  letter  campaign  every  available  excuse  is  used  for 
writing  to  the  dealer.  Every  message  he  receives  serves  to  keep  him  in 
closer  touch  with  the  house.  Many  wholesalers  use  the  letter  method 
effectively  for  the  distribution  of  small  pieces  of  advertising  matter. 

The  letter  campaign  was  used  by  a  certain  manufacturer  of  tobacco 
in  introducing  a  new  product  or  brand.  The  salesman  in  calling  upon 
the  dealer  proposed  to  him  to  sell  the  first  dollar's  worth  of  his  order. 
The  dealer  was  asked  for  a  list  of  twenty  of  his  customers  whom  he  con- 
sidered might  like  the  new  brand.  The  factory  wrote  to  these  twenty 
people  inviting  them  to  try  the  tobacco  at  the  factory's  expense  and  en- 
closing a  card  which  was  redeemable  at  the  dealer's  store  for  one  full 
piece  of  five  cent  goods.  The  dealer  turned  in  all  cards  taken  up  and  the 
factory  credited  his  account  with  the  five  cent  value  of  each  card  returned. 
The  manufacturer  redeemed  an  average  of  6,000  of  these  cards  a  week  for 
the  first  six  months  and  the  plan  was  the  means  of  securing  a  steady  sale 
of  the  goods. 

Another  method  in  use  quite  generally  is  that  of  newspaper  and  bill 
board  advertising  for  introducing  goods  into  a  new  territory.     The  dis- 


74  City  Building 


tributing  house  usually  makes  the  amount  of  such  publicity  dependent 
upon  the  size  of  the  orders  received  in  the  community.  Closely  allied  to 
this  method  are  the  special  window  displays  which  are  put  in  by  the  whole- 
saler's representatives  in  the  dealer's  establishment. 

A  great  deal  of  good  can  be  accomplished  toward  increasing  the  gen- 
eral wholesale  market  of  a  city  by  the  co-operative  effort  of  the  whole- 
salers and  the  city's  commercial  organization.  This  is  a  most  effective 
way  in  which  to  develop  new  territory. 

The  wholesalers  and  the  commercial  organizations  compile  statistics 
showing  the  various  goods  carried  by  the  different  houses;  the  advantages 
of  the  city  over  the  competing  cities  in  freight  rates,  in  quick  delivery,  in 
ease  of  access  and  other  good  selling  points. 

This  information  is  then  disseminated  throughout  the  territory  to  be 
developed.  There  are  many  ways  in  which  this  work  can  be  done.  A 
.trade  excursion  into  that  territory  is  very  good,  during  which  trip  the 
members  of  the  party  distribute  the  advertising  matter  containing  the  in- 
formation suggested  above  and  also  personally  talking  these  same  points 
to  the  dealers. 

A  systematic  campaign  of  letter  and  printed  publicity  is  also  produc- 
tive of  good  results.  Such  a  campaign  is  conducted  on  the  follow-up  plan 
during  the  extent  of  which  the  advantages  of  the  city's  wholesale  market 
are  forcibly  pointed  out.  The  campaign,  or  rather  the  arguments,  should 
get  stronger  and  stronger  as  the  follow-up  progresses  and  should,  in  its 
entirety,  be  overwhelmingly  convincing.  By  no  means  tell  the  whole  story 
in  the  first  letter.  It  is  far  better  to  make  each  letter  cover  thoroughly 
some  one  advantage. 

Newspaper  publicity  is  also  effectively  used  in  the  new  territory  for 
creating  a  demand  on  the  part  of  the  consumer  for  these  goods  handled 
exclusively  in  the  market  of  the  city  doing  the  advertising.  Bill  board 
advertising  is  also  effective  for  the  same  purpose. 

The  expenses  of  developing  new  territory  through  publicity  are  borne 
by  the  co-operative  subscriptions  of  all  the  wholesalers,  commission 
brokers,  manufacturers  and  jobbers  in  the  market.  The  work  is  usually 
conducted  through  the  city's  commercial  organization  which  usually  has 
a  committee  in  charge  of  the  entire  campaign  from  the  raising  of  the 
finances  down  to  the  contracting  for  the  publicity  and  the  payment  of 
the  bills. 

Such  a  campaign,  however,  will  bring  very  little  permanent  good  to 
the  market  unless  it  is  consistently  followed  up  by  the  individual  houses. 
They  must  be  ready  to  put  their  traveling  salesmen  into  the  field  imme- 
diately in  order  to  secure  the  benefits  from  the  campaign.  They  must  go 
after  the  business  which  has  been  created,  and  keep  after  it  in  order  to 
offset  the  added  efforts  of  their  competitors  to  win  back  a  market  which 
they  have  lost. 


Extension  of  Wholesale  Trade  75 


IV 
How  to  Secure  More  Wholesale  Houses  for  the  Market 


It  goes  without  saying  that  the  more  wholesale  houses  carrying  a 
larger  assortment  of  goods  that  a  market  has  the  better  is  that  market, 
The  city  that  can  boast  of  a  hundred  houses,  distributing  nearly  as  many 
different  classes  of  products  is  in  a  much  better  position  to  do  more  busi- 
ness, cover  more  territory,  and  attract  many  more  wholesale  customers 
than  the  city  which  has  only  fifty  houses  selling  half  as  many  classes  of 
goods. 

An  inventory  of  the  wholesale  houses  will  show  the  needs  of  the 
market  in  additional  houses  to  handle  other  goods  necessary  to  complete 
a  well-rounded  market.  Many  dealers  prefer  to  visit  the  market  and 
make  purchases  in  the  houses  themselves  rather  than  to  buy  from  sam- 
ples. These  trips  they  usually  make  twice  a  year,  in  the  spring  and  in 
the  fall.  During  the  balance  of  the  year  they  rely  on  the  traveling  sales- 
men to  book  their  orders  for  replenishing  their  stocks.  These  dealers  con- 
tend that  they  can  buy  to  better  advantage  by  seeing  the  stocks  of  the 
distributing  houses,  not  only  in  saving  money,  but  also  in  securing  a 
better  selection  of  goods. 

Therefore,  the  dealer  of  this  class  prefers  to  go  to  that  market  where 
he  can  make  the  most  purchases  of  different  classes  of  goods,  especially 
if  he  lives  in  a  small  community  and  handles  a  stock  of  general  mer- 
chandise. Consequently,  he  will  go  to  the  city  with  a  hundred  distribut- 
ing houses  in  preference  to  the  city  with  only  fifty  houses,  if  the  expenses 
of  the  trip  and  other  conditions  are  nearly  equal. 

A  well  rounded  market,  therefore,  is  more  to  be  desired  than  great 
size  as  a  primary  requisite.  The  first  efforts  of  the  city  towards  increas- 
ing its  wholesale  market  should  be  directed  toward  securing  the  location 
of  houses  handling  wares  not  sold  at  the  present  time  or  procure  the 
handling  of  the  goods  by  some  one  of  the  houses  already  in  the  market. 

The  information  desired  upon  which  to  base  the  efforts  to  secure  the 
additional  houses  will  include  much  of  the  data  obtained  in  making  the 
inventory  suggested  above.  Additional  information  will  cover  figures 
showing  present  annual  volume  of  business,  the  territory  covered  by  the 
present  market,  the  shipping  facilities  of  the  city,  a  comparison  of  freight 
rates  to  various  points  in  the  trade  territory  and  to  competing  points, 
the  trade  territory  which  should  be  tributary  to  the  city,  together  with 
its  population,  the  number  of  dealers  located  in  that  territory,  their  gen- 
eral reputation  and  standing  as  customers,  the  class  of  trade  which  will 
buy,  and  other  data  of  a  similar  character. 

A  good  way  in  which  to  secure  inquiries  about  such  locations  is  to 
use  the  letter  system.  Secure  a  mailing  list  from  Dunn's  or  Bradstreet's 
commercial  reports.  Write  to  large  distributors  of  the  goods  wanted.  In- 
vite these  concerns  to  investigate  the  city's  opportunities  for  a  branch 
house. 


76  City  Building 


Enclose  in  the  first  letter  a  postal  with  return  address  and  on  the 
other  side  a  list  of  subjects  or  arguments  in  favor  of  the  location  based 
upon  the  information  suggested  above.  This  method  makes  it  easy  for 
the  recipient  to  reply.  He  will  check  the  particular  subjects  in  which 
he  is  interested. 

The  prospect  is  followed  up  consistently.  The  information  asked  is 
first  given  and  this  is  followed  by  additional  letters  and  printed  advertis- 
ing matter  at  regular  intervals  until  he  is  located  or  his  case  becomes 
hopeless.  This  is  perhaps  the  least  expensive  of  all  plans  for  interesting 
the  prospect.  A  plan  which  is  like  the  above  outline,  except  in  the  way 
in  which  the  prospect  is  first  secured,  is  the  advertising  of  the  city's  needs 
in  the  trade  journals  and  other  periodicals.  The  same  sort  of  follow-up 
is  used  after  the  prospect  has  answered  the  advertisement. 

Another  very  good  plan  is  to  visit  the  trade  centers  of  the  products 
desired  in  the  market.  This  is  more  expensive,  but  it  has  the  advantage 
of  having  the  city's  representative  right  on  the  ground  to  interest  the 
prospect  by  personal  magnetism  and  to  answer  his  questions  at  once  while 
his  interest  is  alive  and  unabated.  If  a  boot  and  shoe  house  is  wanted,  a 
trip  to  the  large  factories  may  very  probably  interest  a  young  member  of 
some  firm  not  only  in  the  jobbing  business,  but  in  the  location  of  a  fac- 
tory in  which  to  make  the  market's  shoes. 

One  successful  location  will  repay  a  city  the  expense  of  securing  and  nego- 
tiating with  scores  of  prospects.  The  writer  has  in  mind  one  city  which  worked 
on  sixty-five  propositions  before  securing  a  single  location. 

Another  method  many  times  adopted  to  locate  additional  wholesale 
houses  is  where  the  wholesalers  already  doing  business  in  the  market 
club  together  with  other  citizens.,  organize  a  stock  company,  secure  a 
manager  and  start  the  business  themselves.  The  one  thing  to  be  attentive 
to  in  such  a  case  is  to  surely  have  sufficient  capital  in  the  enterprise  to 
carry  it  through  the  first  year  or  two.  No  matter  how  located,  the  new 
house  will  find  the  other  wholesalers  anxious  for  their  success,  because 
it  helps  their  own  business  and  they  usually  issue  instructions  to  their 
traveling  salesmen  to  let  the  trade  know  of  the  existence  of  the  new  house, 
and  to  boost  their  goods,  some  of  them  even  taking  orders  for  them. 

After  the  market  has  been  rounded  out,  the  same  line  of  procedure 
will  secure  more  houses  in  the  market  handling  the  same  class  of  goods. 
This  also  strengthens  the  market  because  the  dealer  knows  he  will  buy  in 
that  market  under  competition. 

Of  course,  the  larger  a  market  grows,  the  greater  its  natural  attrac- 
tive power  for  other  concerns,  which  will  not  have  to  be  sought,  but  which 
will  locate  of  their  own  free  will. 


Extension  of  Wholesale  Trade  77 


V 

The  Relation  of  the  Wholesale  Interests  to  the  Railroads 


The  wholesale  interests  of  any  community  and  the  railroads  operat- 
ing in  and  out  of  that  community  are  each  dependent  one  upon  the  other 
for  business,  more  business,  and  better  business;  therefore,  the  relation  between 
the  two  interests  should  be  most  cordial.  Both  should  work  together  for  their 
mutual  advantage  and  benefit. 

The  quicker  some  communities  come  to  realize  that  they  cannot  get 
along  without  the  railroads,  and  the  quicker  some  railroads  awake  to  the 
knowledge  that  their  showings  of  increased  earnings  is  dependent  upon 
the  amount  of  business  they  secure  from  the  towns  and  cities  on  their 
lines,  the  sooner  will  both  learn  a  vital  fundamental  of  success  in  the 
structure  of  their  business  policy. 

The  reader  has  probably  noticed  the  frequent  use  of  the  term  "co-operation" 
in  this  book.  It  is  a  peculiar  thing,  but  it  would  be  impossible  to  treat  such  sub- 
jects as  problems  in  city  building  if  the  word  "co-operation"  were  missing  from 
the  language.  Just  so  it  is  impossible  to  accomplish  material  results  in  this 
line  of  endeavor  without  a  practical  application  of  the  term.  Co-operation 
must  be  secured  from  the  citizens  of  a  community  which  expects  to 
progress. 

So  between  the  railroads  and  the  wholesale  interests  there  must  exist 
a  spirit  of  co-operation,  if  a  truly  successful  increase  in  the  market  is  to 
be.  Not  co-operation  in  name,  but  in  deed.  Not  co-operation  on  the  sur- 
face which  is  made  the  burden  of  thought  of  the  annual  banquet  orator, 
while  the  real  underlying  conditions  is  a  continual  wrangle  between  the 
railroads  and  its  shippers,  but  real,  genuine  hand-in-hand  co-operation — 
the  kind  where  both  interests  meet  each  other  half  way  and  always  show 
a  willingness  to  give  and  take. 

Such  a  condition  is  not  unreasonable.  The  wholesaler  must  have  the 
railroad  to  transport  his  goods  to  and  fro  over  the  country.  The  railroad 
must  have  the  wholesaler  to  fill  its  freight  cars  and  keep  them  from  filling 
up  its  miles  of  side-tracks.  Both  do  business  for  a  monetary  profit.  There- 
fore it  is  to  the  interest  of  both  to  work  together. 

Some  cities  which  realize  the  importance  of  such  a  condition  accom- 
plish the  result  of  securing  that  co-operation  by  having  joint  meetings  at 
regular  intervals  between  the  shippers  and  the  railroad  representatives. 
At  these  meetings  discussions  are  had  of  different  transportation  problems. 
The  meetings  also  take  on  a  social  character,  and  are  the  means  of  secur- 
ing the  closer  acquaintanceship  of  both  interests.  In  the  discussions,  the 
opinions  of  all  are  frankly  expressed,  which  leads  to  a  better  understand- 
ing on  all  sides. 

Any  shipper  or  railroad  representative  has  the  privilege  of  introduc- 
ing any  subject  for  discussion.  If  some  shipper  believes  that  the  estab- 
lishment of  a  package  car  service  between  that  city  and  some  other  points 
would  be  the  means  of  increasing  trade,  he  brings  the  matter  up  and  the 
railroads  are  asked  for  their  views. 


78  City  Building 


The  usual  reply  is,  "Show  us  sufficient  business  and  we  will  establish 
the  service." 

The  railroads  may  desire  the  views  of  the  shippers  upon  some  new 
rule  or  regulation  they  wish  to  put  into  effect.  These  meetings  serve  a 
splendid  means  for  securing  those  views.  The  city  may  want  different 
hours  of  closing  of  freight  depots.  The  shippers  may  experience  a  con- 
gestion in  the  handling  of  the  freight  by  the  railroads  which  can  only  be 
relieved  by  additional  loading  platforms,  train  sheds  and  yard  tracks. 
All  such  questions  are  introduced  in  these  joint  meetings  and  plans  for 
their  solution  are  started  toward  success  before  adjournment  is  taken. 

There  are  times  when  it  may  prove  necessary  to  assert  the  rights  of 
the  shippers  in  no  uncertain  terms.  Some  change  may  be  necessary  which 
the  railroads  will  not  care  to  make.  In  such  a  case  the  shippers  should 
decide  that  such  an  innovation  is  necessary  and  then  endeavor  to  obtain 
the  same  through  amicable  treaties.  If  such  a  course  of  procedure  fails, 
then  any  and  all  other  fair  methods  should  be  adopted. 

It  may  take  considerable  time  to  secure  the  change  by  amicable  ne- 
gotiation, but  it  should  be  used  as  long  as  there  remains  a  single  ray  of 
hope  for  success.  Some  cities  have  sought  to  secure  changes  or  improve- 
ments from  the  railroads  by  the  boycott  method.  This  might  be  good  if 
it  worked.  It  is  a  very  hard  matter  to  Ret  any  appreciable  number  of  sjhio- 
pers  to  stand  together  for  any  sustained  period  of  time  in  a  railroad  boy- 
cott when  they  are  at  all  inconvenienced  thereby.  By  far  the  better  way 
is  to  point  out  to  the  railroads  the  needed  improvements,  show  them  how 
they  will  be  benefited  thereby  in  increased  traffic  and  by  persuasion  and 
force  of  argument  compel  them  to  make  the  improvements. 

The  railroads  will  make  improvements  to  take  care  of  increased  busi- 
ness. The  importance  of  some  change,  however,  may  be  overlooked.  This 
is  where  the  shipping  interests  show  their  co-operation  to  advantage. 

Throughout  all  such  dealings  there  is  constant  danger,  in  the  face  of 
so  much  adverse  talk  throughout  the  nation  against  the  railroads,  that 
the  shippers  and  the  railroads  will  misunderstand  each  other  when  the 
demands  are  made  by  one  or  the  other.  To  avoid  such  a  condition,  the 
shippers  should  consider  well  the  validity  of  their  demands  before  making 
them  and  take  pains  in  presenting  the  same  that  the  railroad  represent- 
atives thoroughly  understand  the  reasons  for  the  demands. 

Such  a  course  of  procedure  toward  the  railroad  on  the  part  of  a  com- 
munity as  outlined  above  will  soon  show  the  railroads  the  spirit  of  fair- 
ness of  the  shippers  and  then  no  demand  will  be  submitted  but  what  the  rail- 
roads will  not  only  give  it  careful  consideration,  but  will  also  endeavor  to 
remedy  their  fault 


Extension  of  Wholesale  Trade 79 

VI 
How  to  Secure  Increased  Trade  by  Buyers*  Excursions 


Buyers'  excursions  bear  practically  the  same  relation  to  the  whole- 
salers as  the  plan  of  refunding  fares  to  out-of-town  customers  does  to  the  re- 
tailers. The  same  advantages  are  argued  for  both  and  both  have  like  diatad- 
vantages. 

The  purpose  of  the  buyers'  excursions  is  to  get  out-of-town  merchants 
to  visit  the  market  in  person.  The  wholesaler  realizes  that  if  he  can  get 
the  retail  customer  into  his  house  where  he  is  surrounded  by  a  tremendous 
stock  of  goods,  he  has  a  much  better  chance  to  sell  him  a  large  bill  than 
if  the  merchant  bought  from  the  necessarily  small  sample  line  carried  by 
the  house's  traveling  representative.  Besides,  when  the  merchant  visits 
the  house,  he  meets  the  heads  of  the  concern  and  naturally  he  is  a  little 
more  inclined  to  deal  more  extensively  with  them  because  of  that  personal 
equation,  while,  at  the  same  time,  the  heads  of  the  houses  are  better  able 
to  judge  the  character  of  this  customer  after  meeting  him. 

Most  of  the  large  distributing  centers,  such  as  New  York,  Chicago, 
and  St.  Louis,  conduct  these  buyers'  excursions  upon  a  large  scale,  re- 
funding fares  of  buyers  who  come,  sometimes,  from  the  extremes  of  the 
continent.  Following  this  lead,  the  smaller  places  are  now  doing  the 
same  thing  throughout  their  trade  territory.  In  fact,  some  of  the  very 
small  cities  which  boast  of  even  one  or  two  wholesale  houses  have  adopted 
the  plan  in  order  to  attract  trade. 

In  New  York,  the  various  wholesale  houses  advertise  their  buyers' 
excursions  very  extensively  throughout  the  country  a  short  time  prior  to 
the  opening  of  the  various  buying  seasons.  The  main  dependence  in  this 
publicity  campaign  is  the  personal  letter  to  former  customers  and  to  other 
dealers  whose  accounts  are  desired.  The  buyer  goes  to  the  city,  inspects 
goods  and  makes  his  purchases.  His  bill  is  totaled  and  he  receives  a  state- 
ment from  the  seller  showing  the  amount  of  goods  purchased. 

He  proceeds  to  other  houses,  buying  all  the  goods  he  needs  or  desires, 
receiving  from  each  his  statement  of  amounts  purchased.  He  also  has 
a  list  of  all  concerns  who  are  participants  in  this  refunding  of  fares.  If 
he  purchases  from  wholesalers  not  in  this  list,  he  receives  no  refund  on 
such  purchases. 

After  the  buyer  has  completed  his  purchases,  he  goes  to  the  office  of 
the  secretary  of  the  merchants'  association,  presents  the  statements  of  his 
purchases,  and,  if  the  total  of  all  is  sufficient  to  meet  the  scale,  his  trans- 
portation is  refunded.  If  his  purchases  do  not  meet  the  scale,  he  receives 
a  proportionate  rebate. 

The  scale  spoken  of  shows  the  amount  of  goods  which  it  is  necessary 
to  purchase  in  order  to  receive  a  refund  of  his  transportation.  This  re- 
fund is  generally  about  two  per  cent  of  the  purchases  up  to  the  amount 
paid  by  the  buyer  for  transportation. 

In  a  big  city  like  New  York  a  serious  objection  to  the  plan  was  dis- 
covered in  that  many  buyers  would  rather  lose  this  discount  or  refund 


80  City  Building 


rather  than  go  from  one  section  of  the  city  to  another  in  order  to  present 
his  statements  of  purchases  to  the  secretary  of  the  association.  This  fea- 
ture of  the  plan  has  caused  a  considerable  amount  of  dissatisfaction  on  the 
part  of  the  buyers.  Many  of  the  wholesalers,  therefore,  have  in  recent 
years  made  a  practice  of  refunding  direct  to  the  buyer  the  amount  of  re- 
fund due  because  of  his  purchases  in  that  house.  This  modification  is 
fast  taking  the  place  of  the  old  form. 

The  publicity  campaign,  of  course,  is  financed  by  the  co-operative 
subscriptions  of  all  dealers  entering  the  campaign.  The  amount  of  these 
subscriptions  are  conditioned  upon  the  size  of  each  concern;  that  is,  the 
amount  of  business  done  by  each.  The  money  paid  out  by  the  secretary 
in  refunds  is  collected  from  all  the  houses  whose  buyers'  statements  are 
turned  in  by  the  buyers.  Of  course,  these  amounts  are  prorated  among 
the  wholesalers,  so  that  the  house  which  sells  twice  the  amount  of  goods 
as  some  other  house,  pays  twice  as  much  on  the  refunding  of  fares  as  that 
other  house. 

This  same  plan,  with  some  few  modifications,  is  the  one  in  general 
use  by  the  other  cities.  One  modification,  which  may  be  termed  an  arbi- 
trary one,  has  been  successfully  tried.  It  is  to  limit  the  coming  of  the 
buyer  to  the  city  to  one  certain  day  from  one  section  of  territory.  It  is 
advertised  that  if  a  buyer  shows  his  ticket  purchased  at  his  home  station 
on  a  specified  date  as  indicated  by  the  date  stamped  on  the  ticket,  he  is 
entitled  to  the  benefit  of  the  discount  which  will  be  in  the  form  of  a  refund 
of  his  fare.     This  plan  has  proven  of  worth  in  developing  new  territory. 

In  connection  with  this  refund  of  fare  campaign  a  number  of  cities 
conduct  buyers'  conventions  and  expositions. 

New  Orleans  has  made  a  great  success  of  such  occasions  and  the  buy- 
ers throughout  that  city's  trade  territory  look  forward  with  keen  antici- 
pation to  them.  The  expositions  are  in  the  nature  of  style  shows,  the  lat- 
est things  in  all  the  various  classes  of  goods.  The  convention  sessions  are 
made  famous  for  the  exchanging  of  ideas  for  mutual  benefit  and  usually 
one  or  more  lecturers  who  are  authorities  in  their  respective  fields  are 
secured  to  discuss  vital  questions  in  the  business  world.  With  such  an 
educational  opportunity  presented,  together  with  the  cutting  of  the  ex- 
penses of  the  trip  to  the  minimum,  there  is  little  wonder  that  the  buyers 
are  greatly  attracted  by  these  events. 


Street  Building  and  Cleaning  81 


CHAPTER  7 

STREET  BUILDING  AND  CLEANING 


An  Educational  Campaign  for  Better  Streets 

Never  before  has  there  been  such  attention  paid  to  better  street-paving  as 
there  is  today.  But  many  cities  find  difficulty  in  securing  such  improvements, 
not  only  because  of  an  apathy  on  the  part  of  the  majority  of  citizens  but  also 
because  of  the  opposition  created  by  some  property  holders  who  are  fighting 
not  against  the  new  streets  but  against  the  additional  expense. * 

There  can  be  absolutely  no  question  as  to  the  tremendous  value  of  well- 
paved  streets  in  any  city.  There  is  no  argument  whatsoever  against  the  fact 
that  improved  streets  greatly  enhance  the  value  of  abutting  property.  But  the 
question  is  how  to  get  them.  The  only  way  in  which  it  can  be  done  is  by  means 
of  an  educational  campaign. 

The  logical  manner  of  conducting  such  a  campaign  is  through  the  city's 
commercial  organization.  It  is  wholly  within  its  province  and  one  of  its  strong- 
est standing  committees  should  be  the  Street  Building  Committee.  If  the  com- 
mercial organization  takes  up  the  fight  for  the  betterment  of  the  city's  streets, 
the  battle  is  well  on  its  way  to  victory,  because  the  membership  of  the  organiza- 
tion comprises  the  leading  business  and  professional  men  of  the  community. 
Some  cases  have  been  found,  however,  where  the  commercial  organization,  for 
some  reason  or  other,  did  not  desire  to  prosecute  such  a  propaganda. 

In  some  of  these  instances,  the  newspapers  of  the  community  have  conducted 
successful  campaigns,  while  in  others  the  city  administration,  headed  by  the 
Mayor  and  the  Board  of  Public  Works,  or  the  Street  Department,  has  so  mould- 
ed public  sentiment  as  to  succeed  in  securing  the  passage  of  a  street-improve- 
ment bond  issue.  The  best  way,  however,  is  to  conduct  the  campaign  through 
the  commercial  organization.  This  institution  can  secure  the  support  of  all 
forces  working  for  progress  in  the  community,  the  city  administration,  the 
newspapers  and  the  lay-citizen. 

A  considerable  amount  of  preparation  should  be  done  before  a  single  gun 
is  fired.  Write  to  other  cities,  to  their  commercial  organizations,  for  a  state- 
ment of  the  kind  of  streets  they  have,  the  number  of  miles  of  paved  streets, 
the  methods  used  to  secure  them,  not  only  the  preliminary  campaign  but  also  the 
method  of  financing  such  operations. 

Secure  all  possible  data  on  the  subject,  including  the  names  and  addresses  of 
prominent  men  who  can  be  had  for  speeches  and  special  publications  treating  the 
subject  of  street-paving.  In  1910  the  Department  of  Commerce  and  Labor  issued 
a  bulletin  on  "Commercial  Planning  of  Certain  Cities  of  Europe."  Valuable  in- 
formation on  street-improvement  will  be  found  in  this  and  in  other  bulletins 
issued  by  this  Department.  Photographs  of  street-improvement  in  other  cities, 
showing  conditions  before  and  after  will  be  found  very  effective  object  lessons. 

After  the  data  is  compiled,  secure  estimates  of  cost  from  street-contractors 
for  building  streets  of  different  materials  such  as  granite,  asphalt  and  wood 
blocks,  sheet  asphalt,  brick,  bitulithic  composition  and  other  materials. 

A  good  way  to  start  the  campaign  is  to  secure  from  a  number  of  the  most 
prominent  citizens  of  the  community  interviews  in  favor  of  street  improvement. 


82  City  Building 


If  possible  secure  many  of  the  large  property  holders.  At  the  beginning  of  the 
campaign  it  will  be  much  more  difficult  to  secure  these  interviews  than  after 
the  campaign  has  reached  fever  heat.  Secure  the  support  of  the  newspapers  and 
have  the  interviews  printed  in  them.  Do  not  use  all  of  them  in  one  issue  of 
the  papers.  Accompany  those  you  do  use  with  an  article  showing  the  need  for 
such  improvements  in  your  city.  From  the  time  you  use  your  first  story, 
you  should  have  something  on  the  subject  every  day.  Slowly,  interest 
will  be  engendered  and  citizens  will  line  up  either  for  or  against  the  move- 
ment. Cards  will  probably  be  written  by  some  of  those  of  the  opposition.  Pay 
no  attention  to  these  unless  they  have  real  merit.  Keep  right  on  with  publicity. 
As  soon  as  sufficient  interest  is  created  to  guarantee  an  audience,  call  a  mass 
meeting  of  citizens  to  be  addressed  by  your  own  townsmen. 

Then  begin  with  your  data  secured  from  other  cities.  Use  it  in  the  news- 
papers freely.  If  possible,  have  the  photographs  which  you  have  gathered  made 
into  stereopticon  slides,  prepare  a  lecture  on  the  subject  and  have  another  mass 
meeting  at  which  the  pictures  will  be  shown  and  explained.  This  will  be  found 
to  be  one  of  the  most  effective  features  of  the  whole  campaign.  These  slides  can 
then  be  used  in  the  picture  shows  of  the  city. 

A  statistical  article,  or  series  of  them,  showing  how  street  improvements 
enhance  the  value  of  abutting  property  will  be  found  effective.  All  through  the 
campaign,  work  as  closely  with  the  city  administration  as  possible.  Before  the 
campaign  is  begun,  every  effort  should  be  made  to  secure  the  unquestioned  sup- 
port of  the  city  officials. 

When  the  campaign  is  well  under  way,  a  strong  committee  of  the  business 
men  of  the  community  should  be  appointed  to  devise  ways  and  means  o;f 
financing  the  building  of  the  streets  and  to  make  a  report  on  the  question  of 
materials  to  be  used.  The  report  of  this  committee  should  be  presented  at 
another  mass  meeting  and  action  taken  upon  it.  Preparations  should  be  made 
at  this  meeting  to  carry  the  plan  of  financing  to  the  legislature  for  authority 
to  proceed. 

Then  you  must  prepare  for  another  campaign  of  moulding  public  sentiment, 
if  the  question  has  to  be  voted  upon  by  the  people,  as  in  the  case  of  a  bond  issue. 

It  will  be  found  advisable  to  intersperse  a  number  of  mass  meetings  through- 
out the  campaign  to  be  addressed  by  speakers  secured  from  other  cities  where 
successful  improvements  have  been  made.  These  speakers  will  do  much  to 
awaken  civic  pride  among  your  people  and  give  them  encouragement. 


Street  Building  and  Cleaning 83 

II 
Materials  for  Building  Improved  Streets 


The  material  with  which  a  street  is  to  be  improved  depends  very  largely 
upon  the  section  of  the  city  in  which  it  is  located  and  the  character  of  traffifc 
using  it.  In  the  residential  section  where  the  traffic  is  light  streets  do  not  re- 
quire as  substantial  paving  as  they  do  in  the  wholesale  district.  In  the  residential 
section  more  attention  is  paid  to  the  lessening  of  noise,  the  smoothness  of  the 
street-surface  and  the  beauty  of  the  street. 

Some  of  the  most  common  forms  of  street  construction  are  granite-,  asphalt- 
and  wood-blocks,  sheet-asphalt,  bitulithic,  asphalt-binder,  brick  and  macadam. 
The  granite-blocks  and  brick  are  the  most  usual  materials  for  building  streets 
subject  to  heavy  use,  while  the  other  materials  are  most  often  used  for  the 
retail  and  residential  sections. 

Of  all,  granite-block  streets,  properly  constructed,  will  have  longest  life.  But 
they  are  by  far  the  noisest.  Brick,  perhaps,  comes  next  both  in  producing  noise 
and  for  life.  Wood-blocks  give  a  quiet  street  and  have  reasonable  long  life,  but 
without  particular  care  being  taken  in  construction,  they  are  the  most  treacher- 
ous to  horses.  These  blocks  wear  down  so  smooth  that,  when  they  are  sprinkled 
or  after  a  shower,  it  is  almost  impossible  for  a  horse  to  stand  up  on  them.  They 
must  be  constructed  with  practically  no  crown  at  all,  or  as  flat  as  possible  to 
give  drainage. 

Sheet  asphalt  is  the  most  popular  material  for  the  construction  of  streets  in 
the  retail  and  residential  sections.  Bitulithic  is  also  used  very  extensively.  Both 
wear  well  with  light  traffic  and  produce  nearly  the  minimum  of  noise.  Asphalt- 
binder  and  macadam  are  both  good  for  temporary  streets,  that  is,  where  a  re- 
construction is  expected  to  follow  within  a  few  years.  The  expense  of  building 
these  two  kinds  of  streets  is  the  least  of  all. 

An  accepted  method  of  constructing  a  granite-block  street  is  as  follows: 
Excavate  the  bed  of  the  street  to  a  depth  of  fifteen  or  sixteen  inches.  Level 
the  street  bed  and  roll  it  with  a  heavy  steam-roller.  Mix  a  mediumly  stiff  con- 
crete and  fill  in  to  a  depth  of  six  to  eight  inches.  After  this  has  formed  a  per- 
fect union  throughout  the  street-bed,  fill  in  with  fine  sand  to  a  depth  of  one  to 
two  inches.    This  forms  a  cushion  for  the  granite  blocks  to  rest  upon. 

Now  the  blocks  are  laid  in  separately  in  just  the  position  each  belongs. 
When  the  blocks  are  so  placed  a  portion  of  the  sand  from  beneath  slips  in  be- 
tween the  blocks  and  keeps  them  slightly  apart.  At  intervals  of  about  fifty  feet 
a  little  wider  interstice  is  made  to  serve  as  an  expansion  joint.  This  operation 
is  followed  up  by  filling  the  interstices  with  either  melted  tar  or  cement  grout. 
The  purpose  of  both  is  to  serve  as  a  binder  to  hold  the  blocks  together  into  one 
mass.  Tar  is  the  easier  to  use  correctly  as  great  care  must  be  exercised  to 
have  the  grout  of  uniform  consistency.  No  matter  which  binder  is  used,  the 
expansion  joints  are  filled  with  tar  in  order  to  take  up  the  swelling  of  the  street 
during  a  warm  spell  of  weather.  Expansion  joints  are  also  most  always  laid 
along  the  gutter. 

The  method  of  construction  for  brick  streets  is  practically  the  same.  In 
both  granite  and  brick  streets,  the  length  of  the  blocks  runs  across  the  street 


84  City  Building 


and  not  with  the  street,  while,  in  streets  where  car  tracks  are  located,  between 
the  rails  and  for,  usually,  eighteen  inches  on  either  side,  the  blocks  are  laid 
with  the  rails. 

With  sheet-asphalt  a  concrete  base  is  laid  in  like  manner  as  for  brick 
streets.  On  this  is  spread  several  inches  of  stone  crushed  to  half  the  size  of 
an  egg.  This  stone  is  cooked  in  tar  long  enough  for  the  tar  to  thoroughly 
permeate  every  pore  and  crack  of  the  stone.  This  layer  is  rolled  with  the 
steam  roller.  Then  a  layer  of  coarse  asphalt  is  put  on  and  thoroughly  rolled. 
On  top  of  this  comes  the  last  layer,  asphalt  of  finer  grain.  This  is  rolled,  over 
and  over  again,  until  the  surface  is  as  smooth  as  a  cement  sidewalk.  Around 
all  of  the  manholes,  along  the  gutters  and  the  bricks  near  the  car  tracks,  hand 
ironers  precede  the  roller  smoothing  out  all  joinings.  The  last  operation  is  to 
sand  the  surface  and  close  the  street  to  traffic  for  a  day  or  two. 

Bitulithic  is  a  patented  process  very  much  like  asphalt-binder  but  more 
wearing  and  is  generally  better.  Asphalt-binder  is  constructed  by  putting  down 
a  layer  of  coarsely  crushed  rock,  followed  by  other  layers  more  finely  crushed. 
The  top  layer  is  about  the  size  of  pea-gravel.  Over  this  is  poured  hot  tar 
which  soaks  through  the  entire  mass  and  binds  all  together.  This  is  thoroughly 
rolled  also.  The  crushed  rock  is  often  cooked  in  tar  before  being  placed  on 
the  street 

Macadam  is  built  like  the  asphalt-binder  street  with  the  exception  that  no 
tar  is  used.  The  different  layers  are  put  down  and  rolled  before  the  next  layer" 
is  spread.  This  is  the  poorest  wearing  of  all  of  the  improved  streets  but  (is 
found  very  satisfactory  in  sections  of  cities  where  there  is  very  little  traffic  or1 
where  temporary  improvements  are  desired. 

To  recapitulate,  granite-blocks  and  brick  streets  are  most  common  in  sec- 
tions of  cities  where  heavy  hauling  is  the  rule.  Brick  and  sheet-asphalt  are 
the  most  popular  materials  for  streets  in  the  retail  sections.  Sheet-asphalt  and 
bitulithic  are  used  more  than  other  materials  for  streets  in  the  residential 
districts. 


Street  Building  and  Cleaning 85 

III 
How  to  Build  Streets  Under  the  Ten  Year  Plan 


The  Ten-Year  Plan  of  financing  street  construction  is  so  called  to  distin- 
guish it  from  bond  issues.  So  often  difficulties  are  experienced  in  securing 
bond  issues  and  for  a  long  time  some  other  method  has  been  sought.  The  term 
bond  issue  has  a  very  serious  meaning  to  the  average  tax-payer.  No  matter 
how  low  the  taxes  of  a  city  may  be,  any  effort  to  secure  improvements  by  in- 
creasing the  taxes  always  meets  with  strong  opposition  and  the  majority  of 
cases  submitted  to  the  vote  of  the  people  fail  of  carrying  by  the  proper  majority. 
Often  a  city  finds  itself  handicapped  and  unable  to  issue  more  bonds  because  its 
bonded  indebtedness  has  already  reached  the  limit. 

The  Ten-Year  Plan,  in  a  very  large  measure,  relieves  such  a  condition. 
The  construction  of  streets  under  this  plan,  however,  places  the  burden  of  cost 
upon  the  abutting  property-owners,  while  the  bond  issue  is  borne  by  all  the  tax- 
payers of  the  city.  There  is  a  wide  difference  of  opinion  on  this  question  of 
who  should  bear  the  cost  of  such  improvements.  Those  who  support  the  con- 
tention that  the  abutting  property-owner  should  pay  the  bill  argue  that  the  prop- 
erty is  greatly  enhanced  in  value  and  that  those  property-owners  enjoy  the 
direct  benefit  of  the  constiuction.  The  opposition  contends  that  the  whole  city 
derives  the  benefit;  that  the  man  who  lives  on  an  unimproved  street  should  be 
called  upon  to  pay  his  proportion  of  the  cost  of  street-building  for  the  privi- 
lege of  using  the  improved  street;  and  that  the  property  of  the  entire  city  is 
enhanced  in  value  because  of  the  street  improvement. 

A  simple  statement  of  the  component  parts  of  the  Ten-Year  Plan  is  that 
it  provides  for  the  payment  of  the  cost  of  the  construction  by  the  abutting 
property-owners  and  further  that  this  cost  shall  be  paid  in  equal  annual  install- 
ments during  a  period  of  ten  ytars,  with  or  without  interest.  If  no  interest 
is  allowed,  it  is  altogether  probable  that  the  contractor  will  include  this  interest 
charge  in  the  cost  of  the  street.  It  is  this  fact  that  causes  the  serious  objection  to 
the  plan.  It  increases  the  cost  of  construction  in  some  cases  as  high  as  twenty 
per  cent. 

The  plan  in  this  form  gives  the  contractor  little  protection.  It  makes  him 
responsible  for  the  collection  of  his  money.  If  property-owners  refuse  to  pay, 
he  must  bring  suit.  A  modification  wil\  overcome  this  situation.  The  city  should 
guarantee  the  payment  of  these  debts  and  also  pay  the  interest  on  the  deferred 
payments.  It  is  easy  to  see  that  otherwise  the  contractor  is  compelled  to  make 
his  bid  sufficiently  high  to  cover  probable  loss  in  the  collection  of  his  claims  and 
to  cover  the  interest  charges  on  the  deferred  payments. 

The  usual  method  of  proceedure  is,  fiist,  to  obtain  the  enactment  of  a  law 
by  the  legislature  empowering  the  city  to  construct  streets  after  this  manner. 
The  law  provides  that  the  General  Council  may  order  the  construction  of  any 
street,  that  the  cost  of  such  construction  shall  be  borne  by  the  abutting  property- 
owners  and  that  such  cost  shall  be  paid  in  annual  installments  during  a  pejrio,d 
of  ten  years.  In  drawing  the  bill  the  modification  above  referred  to  should  be 
included.  This  will  go  a  long  way  in  answering  the  arguments  of  the  opposi- 
tion. The  law  so  drawn  places  the  greater  burden  upon  the  abutting  property- 
owner  who  enjoys  the  greater  benefit  of  the  imp\ovement  and  yet  requires  the 


86  City  Building 


entire  citizenry  to  pay  a  portion  of  the  cost  for  the  privilege  of  having  and 
using  the  improved  streets. 

In  Lexington,  Kentucky,  where  many  miles  of  streets  have  been  paved 
during  the  last  year  or  two  under  this  plan,  another  admirable  modification,  not 
included  in  the  law,  is  in  force.  After  the  General  Council  has  ordered  the 
construction  of  a  certain  street,  the  Mayor  requests  the  property-owners  on 
that  street  to  select  a  committee  of  three  of  their  number  who  shall  act^  as 
spokesmen  of  all  during  the  construction  of  the  street.  The  Mayor  appoints 
that  committee  and  it  acts  in  conjunction  with  the  General  Council,  in  an  ad- 
visory capacity  only,  however.  The  committee  obtains  from  the  property  own- 
ers their  desires  of  material  for  the  street,  and  other  important  matters.  The 
committee  reports  to  the  Joint  Improvement  Committee  of  the  General  Council. 
The  Joint  Improvement  Committee  advertises  for  bids  for  the  construction  of  the 
streets. 

The  citizens'  committee  meets  with  the  Joint  Improvement  Committee  to 
open  bids.  The  citizens'  committee  interviews  the  property  owners  on  their  in- 
dividual preference  of  bids  and  contractors.  The  result  is  reported  to  the  Joint 
Improvement  Committee  which  either  excepts  or  rejects  this  advice  in  its 
recommendation  to  the  General  Council. 

The  Joint  Improvement  Committee  recommends  to  the  General  Council  the 
acceptance  of  one  of  the  bids  and  the  General  Council  usually  accepts  this 
recommendation.  The  contract  is  drawn  up.  In  this,  it  is  provided  that  the 
work  shall  begin  within  a  certain  time,  and  that  the  street  shall  be  constructed 
according  to  certain  specifications. 

The  citizens'  committee  is  actively  engaged  in  superintending  the  construc- 
tion and  reports  any  matters  it  wishes  to  the  proper  city  officials.  The  citizens' 
committee  passes  upon  the  acceptance  of  the  street.  It  makes  ifecommCnda- 
tions  to  the  Joint  Improvement  Committee,  which  also  inspects  the  street  and 
recommends  acceptance  or  non-acceptance  to  the  General  Council  whose  action 
is  final. 

When  the  street  is  accepted,  the  first  payments  are  made  and  each  and 
every  year  after  that  until  the  ten-year  period  has  expired.  This  method 
of  street-construction  proves  very  popular  as  it  allows  more  general  improve- 
ment than  the  bond  issue  and  it  does  not  increase  the  tax  rate  of  the  city. 


Street  Building  and  Cleaning 87 

IV 
How  to  Build  Streets  Under  Bond  Issues 


The  bond  issue  as  the  means  of  financing  street  improvement  operations 
is  the  oldest  method  and  is  considered  by  many  cities  to  be  the  best.  It  is  con- 
tended that  this  method  is  the  most  stable  of  any;  that  it  lessens  the  cost  of 
improvement  in  the  fact  that  the  contractors  are  able  to  secure  their  money  as 
the  work  progresses  and  that  it  is  the  easiest  way  in  which  to  raise  the  money. 

While  these  are  decided  advantages,  this  method  also  has  some  disadvan- 
tages. It  takes  a  much  more  thorough  campaign  of  education  to  secure  the 
passage  of  a  bond  issue  for  street  improvements  than  it  does  for  the  building 
of  streets  under  the  Ten-Year  Plan,  for  instance.  No  city  can  bond  itself  for 
more  than  a  certain  amount  and  even  if  they  could,  there  would  be  no  market 
for  the  bonds  after  a  certain  limit  of  bonded  debt  was  reached.  The  revenue 
from  the  sale  of  the  bonds  must  of  necessity  be  used  in  certain  sections  of  the 
city  only  while  the  remainder  of  the  city  goes  without  improvement.  This  also 
presents  another  great  difficulty  in  securing  the  passage  of  the  issue  by  the  vote 
of  the  citizens.  However,  the  bond  issue  is  more  frequently  resorted  to  than 
any  other  method. 

The  first  step  is  to  secure  the  enabling  act  from  the  Legislature.  A  bifll 
must  be  prepared  authorizing  your  city  to  submit  the  question  of  bonding 
itself  for  a  certain  amount  to  the  voters  of  your  city.  A  steering  committee 
composed  of  some  of  the  best  of  your  citizens  will  accomplish  good  results  in 
securing  action  by  the  Legislature. 

Preparatons  must  be  made  to  guarantee  the  passage  of  the  bond  issue  when 
it  is  voted  upon  by  the  voters.  An  educational  campaign  must  be  arranged  to 
begin  a  few  weeks  before  the  election.  The  campaign  should  be  patterned 
after  the  plan  given  in  article  one  under  this  chapter. 

A  few  days  before  election  it  will  be  found  advisable  to  have  a  mass  meet- 
ing at  which  strong  committees  of  citizens  are  appointed  whose  duty  it  shall 
be  to  stay  at  the  polls  until  they  close  for  the  purpose  of  impressing  upon  the 
voters  the  necessity  of  the  bond  issue.  An  efficient  organization  of  this  char- 
acter will  do  wonders  in  securing  a  favorable  vote. 

The  city  administration  has  the  bonds  printed  and  prepared  for  sale. 
Advertisement  for  the  sale  of  the  bonds  is  made  and  a  date  set  for  the  reception, 
of  sealed  bids.  Your  local  banks  can  place  you  in  touch  with  some  of!  the 
best  bond-buyers  in  the  country  and  by  writing  to  these  firms  you  can  often 
secure  additional  bids. 

The  bonds  are  sold  to  the  highest  and  best  bidder.  As  soon  thereafter  as  the 
money  is  forthcoming  from  this  sale,  you  are  ready  to  begin  the  construction 
of  the  streets.  The  city  administration  decides  upon  the  list  of  streets  to  be 
improved,  the  kind  of  material  to  be  used  and  advertises  for  bids  for  the  con-, 
tracts.  These  bids  are  let  and  the  actual  construction  work  is  then  ready) 
to  begin. 

It  will  greatly  assist  in  the  passage  of  the  bond  issue,  if  it  is  understood 
that  a  committee  of  citizens  will  be  appointed  to  act  with  the  city  authorities 


City  Building 


in  an  advisory  capacity  throughout  the  construction  period  as  well  as  through 
the  preliminary  period.  This  citizens'  committee  plan  was  more  fully  treated 
in  the  next  preceding  article  in  this  chapter. 

For  the  purpose  of  eliminatng  as  far  as  possble  the  objection  to  the  band 
issue  that  the  money  is  generally  expended  in  certain  sections  of  the  city  instead 
of  being  used  throughout,  the  following  suggestion  is  made:  Divide  the  city 
into  four  portions.  This  division  should  be  made  as  nearly  equal  as  possible 
from  a  geographical  standpoint  and  from  the  standpoint  of  assessed  valuation  of 
the  property.  Each  portion  will  meet  every  other  at  the  intersection  of  the  two 
chief  streets  of  the  city.  Therefore,  each  portion  will  have  nearly  an  equal 
share  of  mileage  of  streets  in  the  business  section. 

Each  one  of  the  four  portions  should  be  again  divided,  taking  from  each  an 
equal  portion  of  the  business  streets.  Then  put  these  four  subdivisions  into  a 
fifth  portion.  You  have  now  divided  the  city  into  five  parts,  but  the  fifth  part? 
is  also  contained  in  the  other  four.  This  fifth  part  is  the  business  section  and 
because  of  its  importance  will  receive  a  double  portion  in  the  division  of  the 
revenue  from  the  bonds. 

The  next  step  is  the  division  of  the  money.  The  total  sum  derived  from 
the  bond  sale  is  divided  into  five  equal  parts  and  each  part  is  apportioned  to 
each  one  of  the  five  districts.  In  this  way  all  portions  of  the  city  receive  ia 
fair  distribution  of  the  funds  and  each  will  have  a  certain  amount  of  street  con- 
struction. The  fifth  portion,  the  business  section,  will  have  its  one-fifth  of  the 
whole  and  a  portion  of  each  of  the  other  four  divisions. 

Another  plan  of  distribution  is  to  estimate  the  total  mileage  of  streets  in 
the  city,  deduct  the  mileage  of  improved  streets  which  gives  you  the  total  of 
unimproved  mileage.  Then  divide  the  amount  of  money  by  this  mileage  of 
unimproved  streets  and  you  arrive  at  the  amount  of  money  available  for 
building  streets  per  mile.  If  your  funds  are  sufficient,  you  can  construct  them 
all.  If  not,  you  will  be  compelled  to  take  the  most  important  streets  that  are 
unimproved  and  construct  them. 

The  question  of  street-improvement  is  a  very  serious  one  for  all  municipali- 
ties and  the  city  with  streets  well-paved  and  kept  in  a  cleanly  condition  has  an 
asset  which  can  hardly  be  overestimated. 


Street  Building  and  Cleaning 89 

V 

Plans  for  Cleaning  Streets 


"What  profiteth  it  a  man,  if  he  gains  the  whole  world,  but  loses  his  own 
soul,"  and  how  does  it  profit  a  city  to  spend  great  sums  of  money  building  many 
miles  of  splendid  streets  but  allows  them  to  become  catch-alls  for  dirt  and 
refuse?  How  often  is  this  the  case  in  the  American  city  and,  wherever  it  is 
seen,  it  is  a  blot  upon  the  civic  pride  of  that  particular  community. 

To  keep  the  streets  clean  is  strictly  the  business  of  the  municipality  and 
many  methods  are  in  use  to  accomplish  this  result.  Most  cities  have  tlieir 
street-cleaning  departments,  and  own  their  own  machinery,  such  as  sweepers, 
sprinklers,  brooms,  carts,  horses  and  flushers.  They  employ  their  own  laborers 
and  do  the  work  under  the  supervision  of  a  street  superintendent. 

Other  cities  let  out  this  part  of  the  municipal  work  by  advertised  contract. 
The  contractor  does  the  work  for  an  upset  price  for  the  year.  This  plan  has 
one  advantage.  Under  it,  the  city  has  no  capital  tied  up  in  machinery  and  tools 
which  rapidly  depreciate  in  value.  But  where  the  city  does  its  own  street-clean- 
ing, it  usually  is  able  to  save  considerable  money.  This  is  easy  to  be  seen,  be- 
cause any  contractor  before  taking  the  contract  is  going  to  see  a  profit  on  the 
work  and  is  also  going  to  put  his  price  at  such  a  figure  as  to  take  care  of  the  de- 
preciation of  his  plant. 

Where  the  city  does  the  work  or  where  it  is  let  out  by  contract,  the  street- 
cleaning  is  usually  done  by  the  following  method:  There  are  two  shifts  of  men, 
the  day-shift  and  the  night-shift.  The  day-shift  are  the  white-wings  whfc> 
patrol  the  streets  during  the  day  with  brooms,  sweeping  up  the  droppings  and 
other  refuse.  A  recent  invention  has  been  found  to  be  very  useful.  It  is  a 
small  handcart,  constructed  of  small  iron  bars  with  iron  wheels.  The  cart  itself* 
is  simply  a  frame  in  which  is  set  a  large  garbage  can.  The  handles  of  the  cart 
pass  beyond  the  axle  to  the  front  where  they  are  attached  to  a  pan,  which  is\ 
altogether  like  a  house-wife's  dust  pan,  only  it  is  about  two  feet  wide  and  six 
or  eight  inches  deep.  When  the  cart  is  being  moved,  the  handles  elevate  this* 
pan,  and  when  the  cart  is  at  rest,  the  pan  lies  flat  upon  the  street. 

The  man  sweeps  the  trash-  into  it,  pushes  the  handles  down  and  dumps  the, 
sweepings  into  the  garbage  can.  When  the  can  is  full,  the  sweeper  removes  it 
to  the  sidewalk  and  puts  in  another  empty  one.  The  garbage  collector  dumps 
the  refuse  into  his  wagon  to  be  hauled  away  to  the  city-dump  or  crematory 
and  leaves  the  empty  can  sitting  on  the  edge  of  the  sidewalk.  The  disposal  of 
garbage  is  a  serious  problem  but  many  cities  have  solved  it  by  the  building  of 
crematories  in  which  all  refuse  that  can  be  burned  is  burned. 

Without  the  use  of  such  a  can  as  described  above  the  sweepers  must  collect 
the  trash  into  small  piles  in  or  near  the  gutter,  where  it  is  collected  by  the  men 
with  the  wagons.  The  empty  garbage  cans  placed  at  intervals  along  the  side- 
walk also  make  good'  receptacles  for  refuse,  such  as  paper  or  other  trash  which 
pedestrians  would  otherwise  drop  on  the  sidewalk  or  throw  into  the  street. 

The  same  wagons  which  collect  this  refuse  usually  collect  the  dry  garbage 
from  residences  and  business  houses.  An  effective  rule  in  force  in  many  cities 
provides,  that  these  wagons  will  collect  dry  garbage,  as  often  as  necessary,  if 


90  City  Building 


the  same  is  placed  in  a  convenient  place  for  them  in  a  regulation  garbage  can. 
With  business  houses,  this  garbage  usually  consists  of  paper  and  other  sweep- 
ings from  the  store,  which  is  placed  on  the  sidewalk  in  front  early  in  the 
morning  and  is  collected  shortly  after.  With  residences  the  cans  are  placed, 
in  rear  alleys.  By  dry  garbage  is  meant  anything  that  will  burn  readily  afod 
excludes  such  garbage  as  slops  and  tin  cans.  This  garbage  is  collected  by  tank; 
wagons. 

The  night-shift  of  the  street  cleaning  department  does  not  begin  its  worl^ 
until  nine  or  ten  o'clock.  This  shift  does  the  thorough  cleaning  of  the  streets!* 
First  the  street  is  sprinkled  heavily.  The  sprinkler  is  followed  by  the  rotary 
sweeper,  which  sweeps  all  of  the  refuse  to  the  gutter.  Men  with  brooms  sweep 
this  refuse  into  piles  which  are  shoveled  into  the  garbage  wagons  and  carteid 
away. 

Another  method  eliminates  the  sprinkler  and  the  rotary  sweeper.  This 
is  the  flusher.  It  is  a  large  tank-wagon  with  gasoline  power  which  forces 
the  water  onto  the  street  with  sufficient  power  to  wash  the  refuse  into  the 
gutter,  where  men  with  brooms  sweep  the  filth  along  the  gutter  into  the  storm- 
water  sewer. 

During  a  prolonged  spell  of  wet  weather,  streets  generally  get  into  a  slimy 
condition.  Many  cities  call  out  their  fire  departments  and,  with  a  fire  stream, 
flush  the  streets  thoroughly. 

In  the  North,  a  snow  storm  causes  cities  much  extra  work  and  expense, 
Before  the  snow  melts  as  much  of  it  as  possible  is  carted  away.  Many  times  the 
fire  department  can  be  used  to  advantage  in  washing  off  the  slush.  A  good  fire 
stream  will  tear  up  the  ice,  wash  it  into  the  gutter  where  the  next  thaw  melts  it 
and  allows  the  water  to  run  into  the  sewer  or  the  ice  can  be  carted  away  like 
snow.  The  rotary  sweeper  is  also  often  used,  when  the  snow,  first  falls,  to 
sweep  it  into  the  gutter  to  be  carted  away. 

Most  cities  have  difficulty  in  preventing  refuse  paper  in  the  streets.  In 
London,  a  plan  has  recently  been  tried  which  has  produced  splendid  results*. 
The  boy  scouts  of  that  city  were  asked  to  go  through  the  streets  picking  up, 
such  trash.  The  boys  entered  the  work  with  a  surprising  zest,  made  play  out  of 
the  toil  and  cleaned  up  the  city  like  it  had  never  been  cleaned  before. 


Street  Building  and  Cleaning 91 

VI 
Ordinances  Which  Assist  in  Securing  Cleaner  Streets 


No  matter  how  efficient  may  be  a  city's  street-cleaning  department,  no  mat- 
ter how  much  money  is  spent  in  the  effort  to  keep  the  streets  clean,  no  matter 
how  energetically  the  work  is  prosecuted  or  the  character  and  amount  of  ma-, 
chinery  used,  this  work  cannot  be  as  efficient  as  when  the  department  is  assisted, 
with  the  passage  and  enforcement  of  ordinances  which  will  make  it  an  offense 
to  litter  up  the  streets,  sidewalks  and  public  places.  Too  much  stress  cannoti 
be  laid  upon  the  expression,  "the  enforcement  of  the  ordinances."  It  will  avail 
nothing  if  all  the  ordinances  in  the  world  are  passed,  if  they  are  not  rigorously 
enforced.  There  are  ordinances  on  the  statute  books  of  nearly  every  city  which, 
if  enforced,  would  nearly,  if  not  wholly,  solve  the  problem  of  clean  streets. 

The  first  thing  to  do,  is  to  look  up  these  ordinances.  You  will  perhaps  find! 
some  which  you  never  dreamed  were  law  in  your  city.  A  strong  effort  shoula> 
be  made  to  secure  the  rigid  enforcement  of  them.  The  police  and  other 
authorities  are  not  very  much  to  blame  for  the  non-enforcement  of  thent,  if*' 
the  general  public  does  not  particularly  care  either  one  way  or  the  other  aboutj 
the  matter. 

One  of  the  best  ordinances  which  has  ever  been  entered  upon  the  statute 
books  of  a  city  and  one  which  today  is  to  be  found  upon  almost  every  one  of 
them  is  the  anti-spitting  ordinance.  Hardly  any  one  measure  has  been  productive*' 
of  the  same  amount  of  good  results  in  the  cleanliness  of  sidewalks  and  public* 
buildings,  trains  and  street  cars,  to  say  nothing  of  its  sanitary  value,  as  this* 
one,  and  yet  in  exceedingly  few  cities  is  this  ordinance  rigorously  enforced 
today.  How  often  in  your  own  city  do  you  see  men  thoughtlessly  expectorate 
tobacco  juice  or  a  disgusting  collection  of  mucus  upon  the  sidewalk,  when  per- 
haps not  ten  feet  away  there  may  be  posted  a  warning  that  such  an  action  is  ah 
offense  punishable  by  a  five-dollar  fine  and  within  a  stone's  throw  there  may  be' 
a  patrolman  standing  on  duty?  There  is  too  often  a  hesitancy  on  the  part  of* 
patrolmen  to  make  such  an  arrest  but  they  will  do  it  if  the  public  sentiment  of 
the  community  demands  it. 

Another  ordinance  which  has  produced  good  results  in  many  cities  is  one 
which  makes  it  compulsory  upon  house-holders  and  proprietors  of  business 
houses  to  deposit  the  refuse  from  their  establishments  in  uniform  garbage  cans 
and  set  the  same  in  convenient  places  where  the  garbage  will  be  collected  by  the 
street-cleaning  department.  A  penalty  is  provided  in  such  an  ordinance?  for 
throwing  refuse  upon  the  sidewalks  or  into  the  street  by  the  householders  or 
proprietors.  The  purpose  of  having  garbage  cans  is  that  they  are  easy  to  handle 
by  the  collectors  and,  without  this  provision,  all  sorts  of  unsightly  boxes,  barrels 
and  other  receptacles  would  be  placed  on  the  sidewalks  or  in  the  alleys.  The 
ordinance  also  provides  that  these  garbage  cans  shall  be  covered. 

An  ordinance  providing  for  a  fine  against  refuse  droppers  will  do  much  to 
stop  this  carelessness.  This  ordinance  comes  under  the  same  class  as  the  atni- 
spitting  ordinance.  Such  a  measure  should  make  it  a  misdemeanor  for  anyone, 
to  throw  or  drop  any  paper,  fruit  parings  or  other  waste  material  on  the  side- 
walk or  into  the  street.  The  city  should  provide  garbage  receptacles  at  street 
corners  and  in  the  middle  of  the  city  blocks  for  such  refuse.    They  should  be 


92  City  Building 


properly  labelled  and  painted.  The  labelling  should  state  what  the  receptacle  is 
for  and  also  state  that  a  fine  is  provided  for  those  who  do  not  observe  the  ordi- 
nance. 

The  practice  of  throwing  hand  bills  about  the  street  is  fast  being  stopped 
and  also  the  tacking  of  cards  on  telephone,  telegraph,  light,  and  power  poles 
and  fences.  An  ordinance  providing  a  penalty  for  such  offenses  will  greatly 
relieve  such  nuisances.  The  bare  poles  along  a  city's  sidewalks  are  unsightly 
enough  without  having  them  stuck  up  with  all  kinds,  sizes  and  colors  of  adver- 
tising cards  and  streamers.  One  of  the  most  productive  sources  of  paper  waster 
is  the  long  paper  streamers  .tied  together  into  a  bunch  and  tacked  up  on  poles 
or  on  the  doorways  to  stores,  theatres  or  railroad  ticket  offices.  Pedestrians 
tear  them  off,  glance  over  them  and  then  throw  them  down  on  the  sidewalk' 
where  the  wind  blows  them  hither  and  thither.  The  practice  is  common  in 
many  cities  among  a  certain  class  of  merchants  and  various  business  concerns 
to  scatter  thousands  of  dodgers  or  hand  bills  about  the  streets  and  in  the  yards 
of  residences,  advertising  some  special  sale  or  event.  This  is  a  most  prolific 
source  of  trash  and  is  a  very  unsightly  thing  in  any  city  which  permits  it. 

Another  ordinance  is  for  the  protection  of  newly  constructed  streets  which 
will  not  permit  the  tearing  up  of  an  improved  street  for  a  certain  number  of 
years  after  its  construction.  The  purpose  of  this  is  to  prevent  the  public  service 
corporations,  such  as  the  water  company,  the  gas  company  and  the  like,  enter- 
ing a  newly  built  street  and  laying  mains  or  conduits.  The  reason  for  the  ordi-> 
nance  is  that  it  is  almost  impossible  to  repair  a  street  and  make  that  portion  ofi 
it  equal  with  the  rest.  Many  cities  require  these  corporations  to  perform  such 
work  prior  to  the  building  of  the  street,  insisting  that  all  mains  be  laid  and) 
connectons  made  to  the  curb  line  and  that  all  conduits  be  built  before  the  street 
is  constructed. 


Transportation.  93 


CHAPTER  8. 

TRANSPORTATION 


How  to  Secure  Concessions  from  the  Railroads. 

"Work  with  the  common  carriers  co-operatively,  not  antagonistically,"  is  the 
key  to  the  puzzle.  The  railroad,  steamship  or  interurban  corporation  is  an 
inanimate  machine  without  sentiment,  emotion  or  feeling  but  the  men  who  direct 
its  movements  and  business  are  human  beings  having  each  his  portion  of  the  three 
qualities.  "A  soft  answer  turneth  away  wrath"  and  a  spirit  of  co-operation  will 
secure  concessions  from  the  railroads. 

Elsewhere  in  this  book  is  a  chapter  devoted  to  the  general  subject  con- 
cerning the  location  of  industries.  Questions  of  how  to  interest  the  prospect, 
how  to  judge  good  industries  from  bad  and  various  methods  of  locating  in- 
dustries in  successful  use  among  cities  were  discussed  in  that  chapter.  But  after 
the  industry  is  located,  one  of  the  vital  points  in  the  conditions  which  must  exist 
in  order  for  that  industry  to  be  successful  is  transportation.  Your  city  cannot 
afford  to  stand  still  in  transportation  matters  while  its  competitors  are  constantly 
securing  increased  facilities.  Competition  between  cities  as  markets  for  the 
distribution  of  products  is  day  by  day  growing  keener  and  keener  and  trans- 
portation facilities  is  one  of  the  strongest  talking  points  for  or  against  a  city. 

The  purpose  of  the  articles  in  this  chapter  is  to  show  successful  methods 
which  have  been  adopted  in  various  cities  for  securing  better  facilities.  This 
first  article  is  ''how  to  secure  concessions  from  the  railroads."  The  entering 
wedge  is  found  in  the  opening  statement.  By  concessions  is  meant  reduced  rates 
for  special  movements  or  excursions,  special  switches  or  sidetracks  for  new  in- 
dustries and  other  purposes,  the  elimination  of  grade  crossings,  modern  stations, 
both  passenger  and  freight,  and  other  matters  involving  the  betterment  of  freight 
and  passenger  handling  in  and  out  of  the  city. 

Many  times  excursions  are  wanted  in  or  out  of  your  city,  such  as  trade  trips 
by  your  merchants,  excursions  for  the  benefit  of  expositions,  fairs,  conventions 
or  special  tourist  rates.  There  are  two  methods  of  securing  these  rates,  one  is 
to  take  the  matter  up  with  the  chairman  of  the  passenger  association  for  the 
district  in  which  your  city  is  located  and  the  other  is  to  apply  to  your  local  agent 
of  the  line  or  lines  over  which  the  excursion  is  desired. 

In  both  cases  some  statistical  information  should  be  compiled  and  submitted 
with  your  request.  This  expedites  time  and  will  do  much  to  secure  the  rate 
asked  quickly.  One  thing  should  be  remembered,  that  is,  file  your  request,  if 
possible,  at  least  thirty  days  before  the  proposed  date  of  your  excursion.  The 
carriers  require  time  for  the  submission  of  your  request  to  competing  lines,  for 
the  printing  of  the  necessary  tariffs  authorizing  such  rates,  filing  such  tariffs 
with  the  Interstate  Commerce  Commission  and  notifying  their  agents  of  the 
putting  in  of  the  reduced  rate. 

The  statistical  information  referred  to  above  should  cover  the  following 
points:  the  territory  in  which  the  reduced  rate  is  to  apply,  the  rate  desired,  the 
date  or  dates  and  the  duration  of  time,  an  estimate  as  accurate  as  possible  of  the 
probable  amount  of  business  to  be  done  and  from  what  points,  the  reason  or 
occasion  for  which  the  rate  is  asked  and  other  data  which  may  occur  to!  you 


94  City  Building 


as  important,  such  as  the  amount  of  advertising  which  will  be  done  by  you  to 
make  business. 

Every  railroad  in  your  city  is  a  member  of  some  one  of  the  passenger  asso- 
ciations, such  as  the  Central,  Western  or  Southeastern  Association.  Each  asso- 
ciation 'has  a  chairman  to  whom  application  for  special  rates  is  made.  You  can 
take  the  matter  up  direct  with  him  (which  is  the  most  expeditious  method)  or 
submit  it  to  your  local  agent,  who  refers  it  to  his  general  passenger  department, 
which  in  turn  refers  it  to  the  chairman  of  the  association  for  submission  to 
competing  lines,  who  vote  on  the  question  of  granting  the  request.  To  whomso- 
ever you  submit  the  question,  file  all  of  your  data  with  them  and  you  will  be 
notified  in  a  short  time  whether  or  not  the  rate  will  be  granted. 

If  your  request  is  turned  down,  you  have  probably  failed  to  present  your 
case  strong  enough  or  the  request  is  without  merit.  In  the  former  event  go 
back  with  additional  arguments.  This  is  another  reason  for  applying  for  the 
rate  as  early  as  possible.  The  carriers  are  after  as  much  business  as  they  can 
get  and  it  is  only  a  sign  of  business  acumen  for  them  to  ''charge  as  much  as 
the  traffic  will  bear." 

To  secure  new  switches,  compile  your  data  giving  probable  tonnage  in  and 
out,  location  and  length  and  in  general  the  necessity  for  the  switch.  Submit  the 
question  to  your  local  agent.  Wherever  it  is  possible,  do  your  business  with 
this  local  man.  It  makes  him  more  friendly  to  you.  None  of  us  like  to  have 
people  go  over  our  heads  for  something  which  we  can  furnish  ourselves.  If  you 
can  show  sufficient  business,  the  carrier  will  put  in  your  switch  at  their  expense, 
otherwise  you  will  be  required  to  pay  a  portion  or  all  of  the  cost  of  building 
while  the  carrier  will  maintain  it. 

To  eliminate  grade  crossings  is  properly  a  part  of  the  work  of  your  corri- 
mercial  organization.  The  proper  committee  should  consult  with  the  railroad 
officials,  showing  the  advantages  to  their  company  of  putting  their  tracks  be- 
neath or  above  grade.  Such  crossings  make  the  railway  property  more  private 
and  eliminate  the  expense  of  maintaining  watchmen  to  say  nothing  of  the  added 
beauty  to  your  city  by  tasteful  construction.  Crossings  on  grade  are  a  constant 
menace  to  the  railroad  in  heavy  suits  for  damages  to  life  and  property  in 
accidents.    . 

The  same  method  of  proceedure  will  apply  to  all  your  dealings  with  the 
carriers.  Work  with  them  co-operatively,  not  antagonistically.  "Must"  never 
did  accomplish  results  like  "won't  you."  However,  there  are  times  when  the 
issue  must  be  forced.  Many  times  such  conditions  exist  in  the  inequality'  Osf 
freight  rates.  The  handling  of  these  questions  comes  under  the  province  of  the 
Traffic  Bureau. 


Transportation.  95 


II 
How  to  Organize  a  Traffic  Bureau 


The  purpose  of  the  Traffic  Bureau  is  to  study  freight  rates,  express  rates 
and  similar  transportation  problems  for  discriminations  of  an  unjust  character 
on  the  part  of  the  common  carriers  operating  in  and  out  of  your  city.  A  great 
many  cities  have  organized  such  institutions  with  varying  success.  Some  of  them 
are  supported  with  large  sums  of  money  raised  from  the  shippers  who  receive 
benefits  from  such  investigations  in  their  localities.  Other  cities  have  been 
able  to  establish  bureaus  which  are  wholly  or  nearly  self-sustaining.  This  is 
done  through  the  auditing  of  shippers'  claims  upon  a  percentage  or  commission 
basis.  The  management  of  the  freight  audit  department  will  be  discussed  later 
in  this  chapter. 

A  very  satisfactory  way  in  which  to  organize  a  Traffic  Bureau  is  to  issue  a 
call  for  a  meeting  of  the  shippers  in  your  community.  Before  the  meeting,  have 
prepared  a  strong  program  of  speakers  to  discuss  methods  in  use  in  other  cities 
such  as  Chicago,  Pittsburgh,  Buffalo,  and  Omaha,  all  of  which  maintain  success- 
ful departments  of  this  character.  Have  other  speakers  to  cite  results  obtained 
by  such  departments  in  other  places,  and  methods  of  financing  such  operations. 
If  it  is  the  concensus  of  opinion  of  your  meeting  that  such  an  institution  would 
benefit  your  community,  then  decide  on  a  plan  for  raising  sufficient  funds  to 
maintain  the  department  for  a  year.  This  amount  is  generally  raised  by  popular 
subscription,  or  membership  dues  in  the  organization,  from  the  shippers.  The 
municipal  government  in  a  number  of  cities  contributes  heavily  to  the  expense. 
The  size  of  the  fund  necessary  varies  considerably,  ranging  from  $1,500  per 
year  up.  Omaha  supports  her  Traffic  Bureau  with  $15,000  per  year  raised  from 
the  shippers.    Chicago  pays  one  salary  alone  of  $10,000  per  year. 

The  usual  method  of  maintaining  the  bureau  after  it  has  been  organized  is 
by  the  membership  plan.  Where  the  bureau  is  a  department  of  the  city's  com- 
mercial organization,  which  is  almost  invariably  the  case,  a  special  committee, 
usually  called  the  Transportation  Committee,  has  charge  of  the  bureau.  Where 
memberships  in  the  bureau  are  maintained  by  the  shippers,  the  price  of  member- 
ships is  either  fixed  at  a  set  figure  by  the  year  or  graded  according  to  the 
demands  of  each  member  on  the  bureau.    The  latter  plan  is  more  common. 

The  average  bureau  needs  funds  to  employ  a  rate  expert,  a  stenographer, 
stationery,  office  rent  and  kindred  expenses  besides  several  hundred  dollars  for 
traveling  expenses  and  possible  lawyer's  fees  in  handling  cases  before  the  state 
railroad  commission,  or  the  Interstate  Commerce  Commission. 

Your  traffic  expert  will  cost  you  from  $100  per  month  up.  These  men  are 
recruited  from  the  freight  offices  of  the  carriers.  Some  bureaus  secure  their 
experts  from  one  of  the  local  offices.  The  greatest  advantage  of  such  a  selection 
is  that  such  a  man  is  thoroughly  versed  in  local  conditions  affecting  your  rate 
situation.  The  chief  disadvantage  is  the  possibility  that  his  former  employment 
will  cause  him  to  hesitate  in  showing  up  unjust  discrimination,  if  such  are  found 
to  exist.  In  any  event,  if  a  local  man  is  secured,  or  a  foreign  product,  care 
should  be  exercised  to  see  if  he  is  conversant  with  the  fundamental  principles 
of  rate-making,  the  method  of  proceedure  in  handling  complaints  and  the 
preparation  of  cases  for  hearing  before  the  commissions. 


96  City  Building 


There  are  a  number  of  men  who  have  specially  fitted  themselves  for  such 
work  and  often  you  can  secure  the  names  and  addresses  of  good  men  from  cities 
maintaining  Traffic  Bureaus.  Such  men,  however,  usually  hold  their  services 
at  a  higher  figure.  An  average  would  probably  be  from  $2,400  to  $3,000  per 
year.  Many  men  can  be  found  in  the  traffic  departments  of  the  large  distributing 
houses  or  manufactories.  The  first  requisite  in  the  organization  of  the  bureau 
is  to  secure  a  good  manager,  one  who  knows  how  to  carry  on  an  investigation 
of  your  rate  situation. 

After  your  manager  has  been  selected  and  has  entered  upon  his  tenure  of 
office,  his  first  work  is  to  build  up  a  tariff  file.  These  tariffs  are  printed  sched- 
ules of  rates  and  regulations  of  charges  for  handling  freight.  They  are  issued 
by  the^  common  carriers.  These  tariffs  will  be  furnished,  without  cost  in  nearly 
every  instance,  to  the  bureau  upon  application  to  the  carriers  unless  the  supply 
of  any  of  them  is  exhausted,  in  which  case  the  carriers  cannot  be  compelled  to 
furnish  that  particular  tariff.  In  case  of  refusal  to  furnish  tariffs,  which  is  a 
very  rare  occurrence,  the  manager  demands  them  through  the  Interstate  Com- 
mece  Commission.  Where  tariff  supplies  are  exhausted,  a  copy  can  be  seen 
at  the  local  freight  office,  because  the  carriers  are  compelled  to  maintain  com- 
plete files  in  their  offices  for  public  inspection. 

#  In  building  up  the  tariff  file,  your  manager  selects  first  the  most  important 
tariffs  affecting  your  local  conditions  and  commodities  and,  as  time  permits 
and  occasion  demands,  he  secures  the  less  important  ones. 

With  the  reception  of  the  tariffs,  your  bureau  is  organized  and  is  ready  to 
handle  complaints  and  investigate  your  rate  situation  with  the  view  of  ascertain- 
ing whether  or  not  you  are  discriminated  against  unjustly.  Wrhen  the  work  has 
attained  sufficient  volume,  the  stenographer  is  employed.  It  is  usual  to  select 
a  young  man  for  this  position,  because  there  are  many  times  when  he  will  be 
sent  out  on  errands  to  places  where  a  woman  would  not  care  to  go.  The  estab- 
lishments of  many  shippers  and  freight  depots  are  located  in  bad  sections  of 
the  city. 

In  conclusion,  be  sure  that  necessity  demands  such  an  institution  as  a  Traffic 
Bureau  in  your  community.  Interest  the  shippers  of  your  city  in  the  movement 
to  organize  one.  Make  up  the  expense  budget  as  accurately  as  possible.  Secure 
sufficient  funds  to  defray  those  expenses.  Select  your  traffic  manager  with  care. 
Build  up  your  tariff  file.  Then  you  are  ready  to  thoroughly  investigate  youfr 
freight  rates. 


Transportation.  97 


III 
How  to  Adjust  Freight  Rates  With  the  Traffic  Bureau 


After  you  have  organized  your  traffic  bureau  and  placed  in  charge  a  com- 
petent manager,  you  are  then  in  a  position  to  study  the  rate  situation  of  your 
community  from  an  expert  standpoint.  Different  methods  of  investigation  are 
adopted  by  different  bureaus  but  the  following  plan  will  produce  results : 

During  the  organization  period  of  your  bureau,  you  have  undoubtedly  heard 
some  case  of  rates  spoken  of  as  being  discriminatory  against  your  city.  In  such 
event  that  case  will  furnish  a  basis  for  the  starting  of  the  investigation  by  your 
traffic  manager.  For  the  sake  of  example  let  us  suppose  it  is  general  rumor  in 
your  community  that  the  rate  on  coal  is  exorbitant  and  that,  because  of  this 
fact,  manufacturers  looking  for  a  new  location  for  their  plants  pass  your  city  by. 

Your  traffic  manager  has  his  coal  tariffs.  His  first  work  is  to  trace  from 
those  tariffs  data  giving  comparative  rates  to  your  city  and  to  competitive  cities 
from  the  mines,  the  point  of  origin  of  the  shipments.  This  comparative  data 
should  include  competitive  cities  that  are  closer  to  the  mines  as  well  as  farther 
away  than  your  city.  These  tables  of  rates  when  properly  compiled  will  show 
at  a  glance  whether  or.  not  the  existing  rates  are  higher,  or  lower,  or  the  same 
for  your  city  as  to  the  other  competitive  points. 

Suppose  it  is  found  that  the  rate  is  higher  to  your  city  than  to  some  point 
a  greater  distance  from  the  mines.  You  may,  in  that  event,  find  an  unjust 
discrimination  against  you ;  for  the  fourth  section  of  the  Act  to  Regulate  Com- 
merce, under  which  the  Interstate  Commerce  Commission  has  its  being,  says,  in 
substance,  that  no  higher  rate  can  be  charged  by  a  common  carrier  for  trans- 
porting freight  from  one  point  to  another  which  is  higher  than  is  charged 
from  one  point  to  another  a  greater  distance  apart  than  the  first  two  points.  In 
other  words,  this  clause  is  the  famous  "long  and  short  haul  clause"  and  is  used 
as  one  of  the  basic  principles  of  rate  formation.  But  the  Interstate  Commerce 
Commission  has  given  the  common  carriers  the  privilege  of  ignoring  the  pro- 
vision under  certain  condtions. 

For  instance,  in  your  coal  investigation  you  possibly  find  that  the  rate  is 
higher  to  your  city  than  to  some  city  beyond.  Then  it  is  up  to  your  traffic 
manager  to  find  out  why.  That  other  city  may  be  located  upon  a  water-course 
in  which  case  water-competition,  either  potential  or  actual,  enters  the  case  and 
gives  the  reason  for  the  discrimination.  This  discrimination  may  be  an  unjust 
one  against  you  or  it  may  not  be.  And  it  is  this  point  which  forms  the  baslis 
of  complaint  to  be  filed  by  your  traffic  bureau.  Where  the  question  of  potential 
water-competition  gives  one  place  a  lower  rate  than  another  place,  it  is  usually 
the  claim  of  the  carriers  that  they  must  maintain  the  lower  rate  in  order  to 
meet  possible  competition. 

The  question  of  tonnage  also  enters  the  case.  The  carriers  claim  that  they 
can  haul  heavy  tonnage  on  through  trains  to  large  distributing  points  at  less 
cost  per  hundred  pounds  than  they  can  haul  a  smaller  tonnage  on  a  local 
schedule  which  compells  them  to  break  bulk  at  the  smaller  stations. 

All  such  questions  must  be  met  in  your  particular  case  and  satisfactory 
reasons  in  favor  of  your  side  of  the  controversy  found  before  success  can  be 
achieved  in  the  adjustment  of  rates.    When  this  data  is  all  completed  then  your 


City  Building 


traffic  manager  makes  out  his  case  and  submits  it  to  the  local  agents  of  all  lines 
involved  in  the  question.  With  his  compilation  of  information  your  traffic 
manager  is  able  to  meet  and  combat  the  arguments  of  the  agents. 

If  you  are  unsuccessful  with  the  local  agents,  then  the  matter  should  be 
taken  before  the  general  freight  agents  of  the  offending  carriers.  If  no  satis- 
factory results  are  obtained  here,  then  is  the  time  for  presentation  of  the  case 
to  your  state  railroad  commission  (if  the  case  involves  only  intrastate  business), 
or  the  Interstate  Commerce  Commission  at  Washington  (if  the  case  involves 
interstate  business).  The  subject  of  preparing  cases  and  complaints  for  action 
before  these  commissions  will  be  treated  under  the  title,  "How  to  prepare  com- 
plaints." 

The  above  is  given  not  as  a  rule  but  as  an  example  of  how  freight  rates 
are  to  be  adjusted  with  the  traffic  bureau.  Every  case  will  present  different 
situations.  Freight  rates  are  complicated,  consequently  it  is  vital  to  have  an 
expert  traffic  man  who  understands  his  business  in  the  position  of  traffic 
manager. 

It  is  undeniably  true  that  manufacturers  and  wholesalers  exhibit  a  great 
hesitancy  in  entering  into  a  controversy  with  the  railroads  single-handed,  not 
only  because  they  fear  a  severing  of  previous  friendly  relations  and  fair  service 
but  also  because  of  the  tremendous  expense  which  often  arises  from  litigation 
over  a  rate  question,  victory  in  which  would  not  only  benefit  them  individually 
but  their  competitors  as  well.  To  such,  the  traffic  bureau,  conducted  as  a  de- 
partment of  the  city's  commercial  organization,  furnishes,  not  only  a  more  eco- 
nomical method  of  investigation,  but  also,  because  of  the  association  and  co- 
operation of  other  shippers  of  the  community,  relieves  the  alarm  at  the  possible 
future  damage  to  business  by  the  carriers  through  a  spirit  of  retaliation. 

The  investigation  of  rate  discriminations  is  not  the  only  work  of  the  traffic 
bureau  but  many  bureaus  secure  sufficient  revenue  from  the  adjustment  of  loss 
and  damage  claims,  overcharges  and  like  errors  to  maintain  their  operation. 
The  uninitiated  would  be  surprised  at  the  great  number  of  such  mistakes  whrch 
unintentionally  occur.     This  subject  will  be  treated  in  the  next  article. 


Transportation.  99 


IV 
How  to  Manage  the  Freight  Audit  Department 


By  the  freight  audit  department  is  meant  that  department  of  the  traffic 
bureau  where  claims  of  shippers  for  overcharges  on  freight  bills,  loss  or  dam- 
ages to  shipments,  misrouting  of  consignments  and  such  mistakes  are  checked 
up  and  collections  from  the  carriers  made.  This  work  also  applies  to  the  ad- 
justing of  claims  against  the  express  companies.  Some  cities  find  more  errors 
in  express  bills  than  in  the  freight  bills.  They  say  that  the  express  tariffs  ha^e 
not  been  reduced  to  the  same  scientific  basis  as  have  the  tariffs  governing 
freight  shipments. 

The  freight  audit  department  is  one  of  the  most  important  in  the  entire 
work  of  the  traffic  bureau.  Many  cities  maintain  their  bureaus  from  the  revenue 
derived  from  this  source  alone.  Within  the  last  few  years  several  firms  located 
in  different  parts  of  the  country  have  come  into  existence,  which  do  nothing  but 
check  up  old  freight  bills  for  business  houses  on  a  yearly  contract  basis.  The 
writer  has  in  mind  one  firm  in  particular  which  has  its  traveling  representatives 
who  solicit  shippers  in  various  cities,  asking  them  for  their  freight  bills  for  five 
years  back.  The  firm  will  check  them  over,  collect  all  claims  and  remit  fifty  per 
cent  of  such  collections.  Besides  this,  the  concern  charges  an  annual  minimum 
fee  of  twenty-five  dollars.  This  firm  has  built  up  an  enormous  business  and 
numbers  its  client  in  a  great  many  cities  by  the  hundred. 

The  average  business  man  does  not  pay  particular  attention  to  these  freight 
charges  and  if  he  did,  it  could  not  be  supposed  that  he  would  be  able  to  catdh 
all  of  the  errors  which  an  expert  who  has  been  trained  in  handling  traffic  matters 
would  and,  besides,  it  seems  to  be  a  general  custom  with  the  common  carriers 
to  so  delay  the  payment  of  claims  as  to  wear  out  the  patience  of  the  average  man. 
A  host  of  industries,  jobbers  and  other  large  distributors  employ  their  own  traffic 
experts  to  handle  all  matters  pertaining  to  their  shipping  department  and  it  is 
no  uncommon  thing  to  find  that  these  experts  save  more  than  enough  to  pay 
their  salaries  by  the  checking  of  freight  bills  for  discrepancies  alone. 

The  usual  method  of  management  of  the  audit  department  is  to  call  upon 
all  shippers,  members  of  the  bureau,  to  file  with  the  bureau  all  of  their  freight 
bills.  The  traffic  manager  has  established  his  tariff  file  including  as  many  of 
these  printed  schedules  of  rates  issued  by  the  carriers  as  are  found  nectessary 
to  cover  the  principal  commodities  shipped  in  and  out  of  the  community,  to- 
gether with  the  three  classifications. 

These  classifications  are  schedules  issued  by  groups  of  carriers  showing 
what  class  certain  commodities  are  given  when  shipped.  The  three  are  known 
as  the  Official  Classification,  embracing  that  portion  of  the  country  east  of  the 
Mississippi  River  and  north  of  the  Ohio  River  to  the  Atlantic  Ocean ;  the  Southern 
Classification,  embracing  that  portion  east  of  the  Mississippi  River  and  south  of 
the  Ohio  River  to  the  Atlantic  Ocean ;  and  the  Western  Classification,  embracing 
all  of  that  portion  lying  west  of  the  Mississippi  River  to  the  Pacific  Ocean.  The 
Official  has  six  classes,  the  Western  has  ten  and  the  Southern  has  thirteen. 
Because  of  this  difference  in  the  number  of  classes,  errors  are  constantly  being 
made  when  shipments  go  from  one  classification  territory  into  another. 

When  the  freight  bills  are  filed  with  your  bureau,  your  traffic  manager 
checks  them  over  to  see  if  the  proper  classification  has  been  given  to  the  conl- 


100  City  Building 


modities ;  to  see  if  the  proper  routing  has  been  given ;  to  see  if  no  special  rules, 
which  should  apply,  have  been  overlooked;  and  to  see  if  the  rate  has  been 
figured  properly. 

The  proper  classification  involves  not  only  the  character — bulkiness,  con- 
stituency and  weight —  of  the  commodity  but  also  the  manner  of  packing  and 
size  of  the  shipment,  i.  e.,  carload  and  less  than  carload  lots. 

The  proper  routing  involves  the  shortest  and  cheapest  distance  between  the 
point  of  origin  and  the  destination.  Frequently,  savings  can  be  made  by  atten- 
tion to  this  phase  of  shipping  to  avoid  such  things  as  river  or  bridge-tolls  and 
other  special  rules  of  some  carriers. 

The  special  rules  oftentimes  figure  where  least  expected.  These  rules  are 
to  be  found  in  every  classification  and  in  almost  every  tariff.  They  are  excep- 
tions to  the  general  rule  for  application  of  rates  to  cover  certain  conditions  and 
are  extremely  easy  to  be  overlooked. 

The  figuring  of  the  proper  rate  involves  all  three  of  the  above  points; 
classification,  routing  and  rules.  Very  often  mistakes  will  be  discovered  in  the 
improper  classification  having  been  given  a  commodity.  Such  errors  most  fre- 
quently occur  when  a  shipment  passes  through  a  portion  of  more  than  one  classi- 
fication territory.  Many  times  a  rate  could  have  been  lowered  if  a  combination 
had  been  given  of  two  or  more  local  rates  between  two  or  more  points  between 
the  point  of  origin  and  the  destination,  or  the  same  is  true  conversely.  Attention 
for  the  application  of  rules  will  also  often  bring  to  light  errors. 

A  prolific  source  of  loss  to  shippers  is  found  in  loss  or  damage  to  ship- 
iments1  by  the  carriers.  All  members  of  the  bureau  should  file  with  the  bureau 
all  such  cases,  giving  as  full  evidence  as  possible  of  how  the  loss  or  damage 
occurred.  The  traffic  manager  will  then  complete  the  case  and  collect  the  bill. 

The  traffic  manager  in  all  cases,  where  error  is  discovered,  will  file  a  claim 
for  the  difference.  Usually  his  claim  will  be  disputed  but  if  he  is  right,  he  will 
keep  after  it  until  collected,  or  else  he  has  redress  by  referring  the  matter  to  the 
Interstate  Commerce  Commission.    This  is  rarely  necessary. 

^  The  traffic  bureau  usually  charges  a  fee  or  commission  for  the  collection  of 
claims.  The  commission  varies  from  ten  to  fifty  per  cent  of  the  amount  col-r 
lected,  which  the  shippers  gladly  pay,  because  without  such  service  they  would' 
have  probably  lost  the  entire  claim. 


Transportation.  101 


V 

How  to  Prepare  Complaints 


The  preparation  of  cases  against  the  common  carriers  for  presentation  to 
the  railroad  commission  of  the  state,  or  to  the  Interstate  Commerce  Commis- 
sion, involving  questions  relative  to  the  adjudication  of  uniust  rates  and  other 
similar  matters,  is  conducted  in  a  manner  practically  the  same  as  the  prepara- 
tion of  a  civil  suit  in  a  court  of  law,  and  the  conduct  of  cases  is  also  handled  in 
practically  the  same  manner.  If  you  have  any  doubts  upon  the  proper  proceed- 
ure,  application  to  your  state  railroad  commission,  or  to  the  Interstate  Commerce 
Commission,  will  furnish  you  with  the  proper  form.  However,  you  cannot  go 
far  wrong,  if  you  observe  the  following  instructions : 

A  good  rule  to  observe  first  in  traffic  matters  as  well  as  in  court  litigation  is 
to  be  sure  you  have  a  case  before  going  ahead.  The  application  to  the  commis- 
sions for  relief  should  be  the  court  of  last  resort.  Appeal  to  this  source  should 
not  be  taken  until  your  claim  has  first  been  submitted  to  the  offending  carriers 
and  they  have  unequivocably  refused  to  grant  relief. 

The  introduction  of  the  case  to  the  commission  is  in  the  form  of  a  petition, 
which  gives  the  style  of  the  case  in  which  all  parties  making  complaint  are  named 
as  the  complainants,  or  plaintiffs,  and  all  carriers  against  whom  the  complaint  is 
made  are  named  as  the  defendants.  The  petition  cites  specifically  the  charges 
which  the  plaintiffs  make  against  the  defendants  and  closes  with  a  prayer  for 
definite  and  specific  relief.  If  it  is  desired,  any  number  of  parties  suffering  (tihe 
same  offenses  as  charged  in  the  petition  may  file  intervening  petitions  and  thus 
become  parties  to  the  controversy. 

The  petition  is  filed  with  the  state  railroad  commission,  if  the  charges  made 
concern  intra-state  business  alone,  and  with  the  Interstate  Commerce  Commis- 
sion, if  the  charges  concern  inter-state  traffic.  After  the  petition  is  filed,  the' 
proper  officer  of  the  commission  gives  official  notice  to  the  defendant  carrier  or 
carriers  of  the  filing  of  the  complaint.  Reasonable  time  is  given  the  defendants 
to  file  an  answer  to  the  petition.  This  answer  is  in  the  form  of  a  denial  of  the 
charges  as  a  whole,  or  in  part,  and  may  set  up  counter-charges. 

To  this  answer,  an  amended  petition  may  be  filed  by  the  plaintiffs,  covering 
necessary  points  brought  out  by  the  defendants'  answer. 

At  all  stages  of  the  case  both  sides  have  the  right  to  demur  to  any  points 
of  the  contention,  w'hioh  demurrers  are,  of  course,  ruled  upon  by  the  commis- 
sion._  After  the  petition  and  answer  are  filed  in  complete  form,  then  the  com- 
itriission  sets  a  date  for  the  'hearing  of  the  case.  The  setting  of  this  date  is 
nearly  always  arranged  for  the  convenience  of  all  parties,  the  commission,  the 
plaintiffs  and  the  defendants.  This  date  may  be  postponed,  or  otherwise 
changed,  only  through  the  consent  of  the  commission.  Application  to  the  state 
commission  will  furnish  you  with  a  copy  of  the  last  annual  report  of  that  body 
from  which,  with  a  little  study,  you  can  gather  a  great  deal  of  informaltioin 
concerning  the  proper  proceedure  for  conducting  a  complaint. 

When  the  date  for  the  hearing  arrives,  if  both  sides  answer  ready  and  the 
pleadings  (the  petition,  answer,  demurrers  and  amended  petitions)  are  com- 
plete the  opening  of  the  case  is  had.    Then  the  introduction  of  evidnce  is  begun. 


102  City  Building. 


Evidence  in  traffic  cases  may  consist  of  the  various  forms  in  use  in  courts 
of  law,  such  as  witnesses,  to  give  oral  tetimony;  depositions  of  witnesses  who 
for  any  reason  cannot  attend  the  hearing;  affidavits  of  persons  concerning  points 
in  the  case  and  exhibits.  In  rate  hearings,  exhibits  nearly  always  form  a  very 
important  portion  of  the  evidence.  They  are  usually  tables  of  comparative 
statistical  information  concerning  the  contention.  In  the  preparation  of  the 
case,  too  much  attention  can  hardly  be  paid  to  this  important  point.  Compara- 
tive tables  of  rates  which  go  to  show  how  the  defendants  are  discriminating 
unjustly  against  the  plaintiffs  should  be  carefully  worked  out.  This  form  of 
evidence  usually  is  made  the  basis  for  the  chief  arguments  on  both  sides  of  the 
case. 

Both  sides  may  introduce  evidence,  the  plaintiffs  first  submitting  their 
evidence-in-chief.  Then  the  defendants  may  submit  their  answering,  or  denying, 
evidence,  after  which  the  plaintiffs  have  the  privilege  of  introducing  evidence- 
in-rebuttal,  to  be  followed  by  the  defense,  in  case  it  so  desires.  So  the  case  pro- 
ceeds until  all  of  the  evidence  is  before  the  commission. 

The  argument  is  then  begun,  both  sides  having  their  division  of  time. 
Argument  may  take  one  of  two  forms,  oral  argument  or  argument  in  the  form 
of  a  brief.  Each  is  simply  the  summing  up  of  evidence  for  or  against  the  com- 
plaint and  the  citation  of  authorities,  or  decisions  of  other  commissions,  upon 
similar  contentions.  The  brief  differs  from  the  oral  argument  in  the  fact  that 
it  is  written,  is  more  concise  and  more  direct  than  the  oral  argument  which  i% 
spoken. 

The  commission  may  render  a  decision  at  once  but,  by  far  the  most  usual 
thing,  the  case  is  taken  under  advisement  and  a  decision  rendered  later. 

The  chief  points  to  bear  in  mind  in  the  preparation  of  a  rate  case  are  to 
carefully  prepare  the  petition,  paying  attention  to  form  and  charges;  to  be  so 
thoroughly  conversant  with  the  case  as  to  be  able  to  quickly  file  an  amended 
petition,  if  necessary;  to  secure  and  produce  the  strongest  evidence  possible  in 
support  of  your  contention  and  to  carefully  prepare  the  argument  so  as  to  bring 
out  forcibly  the  strong  points  of  your  case. 


Transportation.  103 


VI 
The  Short  Term  Investigation 


It  is  almost  vitally  necessary  for  any  city  which  enjoys  heavy  shipping  to 
maintain  a  permanent  traffic  bureau.  Rates  are  constantly  changing  to  meet 
conditions  which  are  also  constantly  changing  and  in  those  changes  it  is  very 
easy  for  the  interests  of  a  city  to  be  overlooked  unless  that  city  is  on  the  job 
looking  out  for  its  own  welfare.  Any  city  with  considerable  shipping  will  find 
it  to  its  advantage  to  check  up  on  the  freight  bills  of  its  shippers  as  a  safeguard 
against  loss  through  overcharges  or  loss  or  damage.  By  having  the  permanent 
bureau,  the  city's  shippers  have  the  constant  services  of  a  traffic  expert  trained 
\o  look  out  for  their  interests. 

But  if  a  city  has  none  and  finds  itself  confronting  a  serious  rate  situation 
tvhich  may  be  retarding  its  commercial  or  industrial  growth  and,  for  any  reason, 
it  is  decided  that  it  is  not  expedient  to  organize  a  permanent  traffic  bureau,  it  is 
altogether  possible  to  clarify  the  situation  by  employing  an  expert  for  a  short 
time  of  thirty,  six.ty,  ninety  days  or  as  long  as  necessary  to  make  an  investiga- 
tion of  the  case  in  point. 

The  first  step,  then,  in  conducting  the  short  term  investigation  is  to  secure 
the  traffic  expert.  There  are  a  number  of  ways  in  which  to  do  this.  The  most 
inexpensive  and  generally  the  least  satisfactory  is  to  secure  a  local  rate  man. 
The  reason  this  method  so  often  proves  unsatisfactory  is  that  very  seldom  has 
the  local  man  had  experience  in  conducting  such  investigations.  There  may  be 
no  question  at  all  but  that  he  is  thoroughly  conversant  with  freight  rates  and 
how  to  figure  them,  but  if  he  does  not  know  the  various  steps  in  the  investiga- 
tion, covering  not  only  the  rates  themselves  but  also  the  "why"  of  them,  he  ca4 
hardly  prove  satisfactory. 

In  the  great  majority  of  cases  it  is  much  better  to  secure  a  man  who  knows, 
through  experience,  all  of  the  necessary  points  entering  into  the  rate  condition. 
Such  a  man  will  cost  from  two  hundred  dollars  per  month  up.  An  advertise- 
ment in  some  good  traffic  journal  will  bring  many  applicants  from  whom  a  satis- 
factory selection  can  be  made.  A  letter  addressed  to  the  secretary  of  the  com- 
mercial organization  of  the  large  distributing  centers,  such  as  Chicago,  St.  Louis, 
Washington,  New  York,  or  Pittsburgh  will  probably  bring  dependable  recom- 
mendations of  traffic  men  whose  services  are  available  and  the  cost  of  employing 
such  men.  There  are  also  some  few  firms  of  reputable  standing  located  at  dif- 
ferent points  in  the  country,  and  especially  in  Washington,  where  the  chief  hear- 
ings before  the  Interstate  Commerce  Commission  are  held,  who  make  a  specialty 
of  conducting  such  investigations. 

It  is  not  necessary  to  have  a  tariff  file  in  order  to  conduct  a  short  term 
investigation  because  the  carriers  are  required  to  carry  a  complete  file  of  tariffs, 
which  are  open  to  the  inspection  of  the  public,  but  it  would  greatly  facilitate  the 
work  of  the  expert,  if  a  tariff  file  were  ready  for  him  when  he  begins  the 
investigation.  It  is  a  comparatively  easy  matter  to  secure  such  a  file.  Any 
shipper  can  request  copies  of  any  tariff  from  any  of  the  carriers  in  the  country 
and  they  will  be  furnished  him,  if  not  out  of  print.  They  can  also  be  secured 
through  the  Interstate  Commerce  Commission.  So  to  secure  a  tariff  file  for  the 
short  term  investigation,  make  out  a  list  of  tariffs  necessary  for  the  study  of 


104  City  Building. 


the  particular  rate  condition  to  be  investigated  and  have  some  shipper,  or  the 
commercial  organization,  to  make  application  to  the  carriers  for  them. 

When  the  traffic  expert  arrives,  he  will  begin  his  work  by  interview- 
ing the  shippers  and  securing  from  them  all  of  their  complaints  concerning  the 
particular  rate  condition.  After  he  has  made  himself  thus  familiar  with  the  local 
situation  and  the  relief  which  the  shippers  ask,  he  will  begin  an  exhaustive  study 
and  comparison  of  that  situation,  comparing  it  with  similar  situations  in  other 
communities,  which  are  competitors,  and  to  see  if  the  relief  asked  is  a  jus;t 
request,  or  if  a  greater  relief  can  be  secured.  He  will  compile  this  statistical 
information  for  use  in  the  event  the  case  is  Taken,  either  to  the  state  railroad 
commission,  or  the  Interstate  Commerce  Commission. 

After  arriving  at  a  definite  conclusion,  he  will  make  a  report  of  his  findings. 
If  he  reports  that  no  relief  can  be  hoped  for,  the  investigation  is  closed  so  far 
as  he  is  concerned.  But  if  he  reports  that  relief  should  be  granted,  he  shoulld 
be  authorized  to  proceed.  He  will  submit  the  case  to  the  offending  carriers  for 
adjudication.  He  will  use  every  legitimate  means  to  secure  such  an  adjudication 
from  the  carriers  themselves  first,  before  taking  other  steps.  If  no  satisfaction 
is  secured  by  this  means,  he  will  prepare  his  case  to  bring  it  before  the  proper 
commission. 

He  will  conduct  the  case  in  its  hearing  before  the  commission  and  will  make 
a  final  report  covering  the  whole  progress  of  the  investigation  from  its  beginning 
to  its  close.  A  number  of  cities  have  conducted  investigations  after  this  manner 
and  have  found  the  plan  very  successful  in  securing  relief  from  the  bad  adjust- 
ment of  rates  in  specific  cases. 

In  concluding  this  chapter,  it  is  well  to  bear  in  mind  that  to  secure  con- 
cessions from  the  railroads,  better  results  can  be  accomplished  through  co- 
operation rather  than  antagonism;  that  a  traffic  bureau  properly  organized  can 
do  much  good  for  a  city  in  adjusting  rates  and  auditing  freight  bills  and  thajt 
a  short  term  investigation  properly  handled  will  deliver  results  as  long  as  it  is 
in  existence. 


The  City  Beautiful.  105 


CHAPTER  9. 

THE  CITY  BEAUTIFUL 


Parks. 


Because  it  would  be  entirely  out  of  the  question  to  attempt  an  article  of  the 
length  to  which  this  must  necessarily  be  confined  to  give  even  a  smattering  of 
what  the  American  cities  are  doing  in  park  improvements,  only  two  examples 
will  be  used.  One  of  these  recites  how  a  park  was  secured  in  a  small  town  in 
Iowa  and  the  other  tells  of  the  manner  in  which  the  park  and  boulevard  system 
of  Kansas  City,  one  of  the  most  beautiful  in  this  country  today,  was  financed,  a 
problem  of  interest  to  nearly  every  city,  large  or  small. 

Every  small  town  should  own  a  park.  The  Woman's  Club  of  a  small  town 
in  Iowa  decided  that  a  certain  most  untidy  public  square  could  be  made  over  into 
a  beautiful  little  park.  They  accomplished  this  achievement  without  expending 
a  dollar.  They  secured  permission  to  plant  shrubbery  and  the  Town  Marshal 
donated  the  labor  of  a  prisoner. 

The  committee  put  in  three  days  with  that  man  with  a  wheelbarrow.  At  the 
end  of  the  time  enough  shrubbery  had  been  brought  from  neighboring  lawns 
and  planted  in  the  park  to  satisfy  every  one  of  them.  Some  flower  beds  too, 
had  been  spaded  up  and  made  ready  for  planting. 

For  its  next  meeting  of  the  Club  at  the  school-house,  a  diagram  of  the  flower 
beds  was  made  on  the  blackboard,  and  donations  of  plants  were  solicited. 
When  a  woman  said  "I  will  give  twenty  pansy  plants  or  asters  or  nasturtiums," 
her  name  and  contribution  was  written  in  a  space  in  the  diagram.  In  a  very 
shori  time  all  the  spaces  were  filled,  with  the  understanding  that  each  donor 
must  set  out  her  own  plants  and  care  for  them  through  the  summer.  Most  of 
the  promises  were  kept  and  the  flowers  made  a  brave  showing.  The  town  mar- 
shal, who  loved  flowers,  began  to  be  interested  in  the  park.  He  found  time  to 
prune  a  few  trees  and  used  a  lawn  mower  occasionally.  Part  of  the  time  the 
grass  was  mowed  by  voluntary  labor  from  citizens. 

The  Town  Council  began  to  take  notice,  and  an  appropriation  for  park  pur- 
poses is  now  a  regular  thing  each  spring.  The  park  is  the  pride  of  the  town 
and  the  small  boys  its  greatest  admirers.  Not  a  single  shrub  or  flower  has  been 
disturbed  since  the  park  was  opened. 

The  citizens  have  enjoyed  the  park  and  been  influenced  by  its  tidiness  to 
make  a  greater  effort  to  keep  the  lawns  and  shade  trees  of  the  town  in  better 
condition. 

After  public  sentiment  had  been  aroused  in  the  question  of  parks  in 
Kansas  City,  the  Mayor  appointed  a  Board  of  Park  Commissioners  in  1892. 

In  1893  this  board  published  an  extensive  report,  setting  forth  proposed  im- 
provements, and  showing  how  they  would  be  likely  to  affect  the  city's  welfare.  A 
very  large  majority  of  the  people  began  to  ask,  "Who  is  going  to  foot  the  bill?f 
Owing  to  the  rapid  growth  of  the  city  and  the  immense  cost  for  public  improve- 
ments to  keep  pace  with  the  population,  the  city's  financial  resources  were 
strained  to  the  limit.  Bonds  in  the  sum  of  $3,100,000  had  just  been  voted  for  the 
purchase  of  water-works,  thereby  exhausting  the  city's  debt-making  power  for  a 
number  of  years  to  come. 


106  City  Building. 


Paradoxical  as  it  may  seem,  to  this  discouraging  state  of  municipal  credit 
is  due  the  possibility  of  Kansas  City's  splendid  system  of  parks  and  boulevards, 
growing  from  practically  nothing  to  2,200  acres  of  parks  and  40  miles  of  boule- 
vards and  parkways,  and  without  increasing  the  public  debt,  although  ten  mil- 
lions have  been  expended  in  the  work  to  date. 

Bonds  being  out  of  the  question,  a  scheme  of  special  assessments  against 
benefited  property  was  devised.  Furthermore,  a  bond  issue  not  being  agitated 
before  the  people,  the  pessimists  did  not  get  their  usual  opportunity  to  organize 
in  opposition.  Around  all  proposed  parks  or  boulevards,  benefited  districts  were 
established.  For  the  sake  of  convenience  the  city  was  divided  into  five  park  dis- 
tricts, but  benefit  districts  might  extend  from  one  park  district  into  another. 
The  broad  general  principle  applying  that  those  receiving  the  benefit  should  pay 
the  cost,  opposition  to  any  particular  improvement  was  not  aroused  in  localities 
remote  from  the  improvement. 

The  special  form  of  benefit  tax  used  for  the  building  of  the  Kansas  City 
system  of  parks  and  boulevards  resulted  in  the  sale  of  Park  Fund  Certificates, 
which  were,  "merely  a  collective  expression  of  the  separate  assessments  against 
the  lands  in  the  park  districts,  the  City  Treasurer  acting  as  a  trustee  for  the  col- 
lection and  disbursement,  but  did  not  become  obligations  of  the  municipality  and 
did  not  conflict  with  the  limitations  on  the  city's  debt-making  power."  These 
certificates  bore  interest  and  were  sold  the  same  as  bonds,  the  interest  being  6 
per  cent  with  the  privilege  of  payment  in  full  within  sixty  days,  but  where  pay- 
ments were  delayed  the  interest  was  increased  to  15  per  cent.  The  certificates 
were  usually  made  so  that  the  benefit  tax  spread  over  twenty  annual  payments, 
but  in  cases  where  the  amount  was  very  small  the  number  of  annual  installments 
was  reduced  by  one-half.  Insurance  companies,  banks,  loan  and  trust  com- 
panies, etc.,  were  glad  to  pay  a  premium  on  the  certificates,  some  being  sold  at 
7  per  cent  above  par.  The  demand  proved  to  be  greater  than  for  ordinary 
municipal  bonds,  and  the  method  devised  out  of  the  absence  of  city  funds  proved 
in  the  end  to  be  a  blessing. 

The  boundaries  of  Kansas  City  have  expanded  considerably  since  1892;  but 
it  is  noteworthy  that,  though  the  system  as  proposed  in  1892  was  complete  in 
itself,  it  was  capable  of  expansion  along. natural  lines,  and  is  as  efficient  a  part 
of  the  greater  system  of  today  as  it  was  comprehensive  in  the  old  city. 


The  City  Beautiful.  107 


II 
Playgrounds 


After  and  in  the  midst  of  the  growth  of  a  nation  which  has  startled  the 
entire  world,  the  American  City  has  at  last  paused  sufficiently  long  to  seriously 
consider  some  of  the  problems  confronting  them  and  of  an  import  to  most  of 
them  vastly  more  important  than  growth.  The  necessity  for  building  for  the 
future  has  asserted  itself  and  nearly  every  city  of  size  in  this  country  is  doing 
work  along  this  line. 

Manufacturers  looking  for  new  locations  are  now  asking  questions  concern- 
ing the  sanitary  and  safe  housing  of  their  employes,  the  city's  building  code,  the 
purity  and  adequateness  of  the  water  supply,  sanitary  disposal  of  sewerage  and 
garbage,  the  character  of  the  schools  and  playgrounds  and  parks  in  which  the 
future  employes  may  grow  up  in  normal  open  air  existence. 

One  of  the  most  important  of  all  of  these  subjects  is  that  of  providing  play- 
grounds for  the  children.  The  story  of  how  Hoboken,  N.  J.,  acquired  their  first 
playground  is  of  interest. 

Several  years  ago  the  Mayor  appointed  a  Board  of  Playground  Commis- 
sioners. The  first  difficulty  which  presented  itself  was  to  find  a  vacant  piece  of 
ground  in  the  part  of  the  town  where  most  of  the  tenement  houses  are  situated. 
A  piece  was  fortunately  found  in  the  very  center  of  the  crowded  district,  175 
feet  wide  and  107  feet  long  which  was  purchased  for  $25,000.  This  was  paid  for 
out  of  a  bond  issue  of  $50,000  set  aside  for  the  special  purpose  of  providing  a 
playground.  The  remaining  $25,000  was  spent  as  follows:  Building  $19,305; 
architect  $977.15;  equipment  $1,600.97;  grading  $632;  furniture  $470.96;  and 
other  items  brought  the  sum  total,  outside  of  the  purchase  of  the  land,  to 
$24,142.06.  This  sum  provided  two  playgrounds,  one  for  the  boys  and  one  for 
the  girls,  with  a  recreation  building  42  feet  high,  46  feet  wide  and  60  feet  long 
in  the  center,  which  thus  formed  a  division  between  the  two  playgrounds.  There 
were  the  usual  swings,  slides,  a  sand  pile  and  hammocks  for  the  children,  and 
benches  for  the  mothers  sheltered  by  an  awning;  also  a  tennis  court,  basket  ball, 
volley  and  baseball  grounds. 

In  the  basement  on  one  side  are  shower  baths  for  the  boys,  and  on  the  other, 
shower  baths  for  the  girls ;  on  the  first  floor  are  three  meeting  rooms,  and  on  the 
second  floor  a  hall,  which  is  used  for  dances,  boxing  and  basket  ball  games. 

The  Tax  Commissioners  of  Hoboken  appropriated  $3,610  for  1911  for  up- 
keep under  the  following  heads:  Salaries  for  superintendent,  $1,200;  janitor 
$720  and  a  female  assistant,  $360;  repairs  $200;  supplies:  coal,  $175;  wood,  $25; 
electric  light  and  gas,  $250;  janitor's  supplies;  apparatus,  and  supplies,  $150; 
office  expenses,  $235 ;  reading  matter,  $25 ;  music,  $150 ;  incidentals,  $100. 

Through  the  strictest  economy,  the  City  Treasurer  holds  $1,500  unexpended 
balances  on  the  bond  issue  and  the  budgets  of  two  previous  years.  A  remarkable 
benefit  to  the  children  of  Hoboken,  is  indicated  by  the  following  figures  for  the 
year  1911:  Tennis  games,  766;  volley  ball  games,  190;  basket  ball  games,  638}; 
baseball  games,  251;  library  books  read,  437;  shower  baths,  19,957;  boxing  bouts, 
144.  Attendance  from  May  1,  1911,  to  May  1,  1912,  134,928;  evening  attendance 
from  November  1,  1911,  to  April  1,  1912:   Boys,  5,670;  girls,  2,655. 


108  City  Building. 


Municipal  dances  have  been  given  at  intervals,  each  one  costing  an  average 
of  $12.  The  remarkable  way  in  which  the  children  have  taken  hold  of  self- 
government,  the  admirable  co-operation  between  the  boys  and  girls,  and  the 
touching  interest  of  all  the  neighborhood  in  the  children's  games  and  festivals 
shows  beyond  question  the  real  value  of  this  playground.  The  sight  on  a  holi- 
day of  the  tenements  surrounding  the  playgrounds,  every  window  occupied  by 
an  admiring  parent  or  friends,  is  one  not  to  be  forgotten. 

Hoboken  has  shown  what  a  small  city  can  achieve  by  a  small  expenditure. 

So  important  has  the  playground  movement  become  that  in  New  York  a 
playground  creed  has  been  adopted,  the  main  features  of  which  are: 

That  a  city  child  needs  a  place  to  play,  things  to  play  with,  and  some  one  to 
take  a  fatherly  or  motherly  interest  in  its  play: 

That  a  playground  should  be  made  attractive  to  win  the  child;  varied  in 
equipment,  to  hold  the  child;  and  supervised  by  directors  trained  in  child 
culture ; 

That  the  family  life  should  be  encouraged  in  the  playground,  avoiding  the 
formal  grouping  according  to  age; 

That  normal  play  is  a  better  preparation  for  normal  life  than  exciting  com- 
petitions and  complicated  games; 

That  a  program  for  playground  work  should  be  very  elastic,  allowing  for 
changes  to  suit  the  immediate  need  of  the  child,  weather  conditions,  etc.,  but 
should  definitely  establish  the  duty  of  each  of  the  staff,  so  that  no  phase  of  the 
work  may  be  neglected; 

That  playground  work  where  the  character  of  the  child  may  be  best  mould- 
ed through  skilful  suggestions,  informally  given,  should  be  in  the  hands  of  per- 
sons of  the  highest  character  and  best  training; 

That  the  park  playgrounds  should  be  open  on  week-day  mornings  as  well 
as  after  school,  and  under  supervision,  so  that  the  mothers  and  babies,  and 
physically  weak  and  mentally  defective  children,  may  have  opportunity  for  out- 
door play  when  the  grounds  are  not  crowded  with  school  children ; 

That  $300  given  for  rubber  balls,  jumping  ropes,  etc.,  which  will  supply  a 
thousand  or  more  children  a  whole  year  with  practical  lessons  in  the  care  of 
public  property,  unselfishness,  etc.,  will  bring  better  return  to  the  government 
than  an  equal  amount  spent  for  hospitals,  prisons,  children's  courts,  or  other 
remedial  institutions; 

That  playgrounds  should  be  developed  into  centers  of  civic  usefulness. 


The  City  Beautiful.  109 


III 
Ornamentation 


A  beautiful  city  is  a  joy  forever,  is  a  pleasant  place  in  which  to  live  and  do 
business.  Therefore,  it  possesses  in  its  beauty  an  advantage  beyond  estimate  for 
attracting  new  people  and  business.  Ornamentation  of  a  city  by  its  citizens  is 
an  investment  which  will  yield  incalculable  dividends  in  contentment  and  where 
people  are  contented  they  are  willing  to  remain. 

Every  city  may  make  itself  beautiful  if  it  desires  to  develop  the  natural 
opportunities  of  which  each  is  possessed.  No  city  should  be  without  its  parks, 
which  become  beautiful  nature  retreats  in  the  midst  of  the  busy  hum  of  indus- 
try where  the  business  man  may  linger  for  a  few  minutes  on  his  way  home  from 
a  day  of  toil  and  in  those  few  moments  go  back  in  retrospection  to  the  boyhood 
days  when  his  hours  were  spent  close  to  nature's  heart. 

How  much  good  does  it  do  for  the  man  who  is  typically  American — there- 
fore working  always  under  forced  draught — to  hear  the  calls  of  the  birds,  to  see 
the  peaceful  life  in  the  foliage  of  the  trees  and  to  breathe  an  atmosphere  laden 
with  the  delicious  aroma  of  blooming  flowers !  Such  a  taste  of  real  life,  he  gets 
from  a  halt  in  a  park.  It  is  impossible  for  him — a  human  being — to  be  entirely 
impervious  tp  the  insinuating,  insistent,  subtle  influence  of  such  beauty. 

Ornamentation  of  a  city,  or  rather  the  development  of  a  city's  possibilities 
has  the  effect  upon  that  city's  people  of  making  them  better  fit  for  their  duty,  of 
broadening  and  deepening  their  character,  and  of  creating  a  spirit  of  civic  pride 
out  of  which  comes  a  determination  to  overcome  all  obstacles  in  the  way  of  civic 
progress. 

Street  lighting,  eliminating  billboards  and  the  smoke  nuisance,  providing 
for  the  cleanly  disposal  of  all  refuse,  prohibiting  the  tacking  of  signs  and  cards 
on  fences  and  poles,  erecting  artistic  public  buildings  and  public  improvements 
and  in  short  taking  advantage  as  far  as  practicable  of  every  opportunity  of 
adding  to  the  ornamental  beauty  of  the  city  belong  to  this  subject. 

The  boulevards  and  parkways  in  the  vicinity  of  Boston  are  synonyms  of 
beauty  and  are  a  constant  source  of  pleasure  and  pride  to  those  who  daily  make 
use  of  them.  Many  of  them  resemble  the  plans  in  vogue  in  many  European 
cities.  On  the  outer  edges  are  walks  for  pedestrians  with  accompanying  strips 
of  well  kept  lawns  in  which  are  planted  various  kinds  of  shade  trees.  Next  in 
toward  the  center  are  bridle  paths  for  horseback  riding.  These  paths  are  many 
times  constructed  of  cinders  so  as  to  give  a  softer  and  surer  footing  for  horses 
than  the  hard,  smooth  surface  of  the  regular  driveways  which  are  separated 
from  these  bridle  paths  by  another  row  of  shade  trees  and  strip  of  lawn.  The 
center  of  the  whole  is  occupied  by  the  trolley  lines.  The  spaces  between  the  rails 
are  grass  sown  and  instead  of  ties  and  rock  ballasting  shocking  the  eye  in  such 
a  vista,  the  greensward  relieves  and  softens  the  whole. 

Of"  late  years  the  care  of  shade  trees  has  become  such  an  important  matter 
that  nearly  every  city  of  average  size  has  its  forestry  expert  paid  by  the  city  to 
carefully  guard  the  life  of  these  invaluable  ornaments.  Cracks  are  healed  by 
cement  as  soon  as  they  appear.  New  trees  are  constantly  being  planted.  In 
Hamilton,  Ohio,  the  city  has  trees  planted  along  every  new  street  as  it  is  paved 
and  the  maintenance  of  these  trees  is  provided  from  the  city  taxes. 


110  City  Building. 

More  attention  is  being  paid  to  the  artistic  beauty  of  public  buildings  and 
improvements,  such  as  bridges,  aqueducts,  viaducts,  etc.,  than  formerly.  Des 
Moines,  Iowa,  furnishes  an  excellent  example  of  this  feature  of  ornamentation 
in  the  magnificent  civic  center  recently  erected  and  dedicatd  with  great  ceref- 
mony  as  a  remarkable  achievement  of  the  Commission  Form  of  Government, 
and  also  the  ornamentation  of  the  river  banks  through  the  city  with  parks  and 
pleasure  grounds  together  with  a  number  of  massive  concrete  bridges  of  a  beau- 
tiful style  of  architecture  patterned  in  large  measure  after  the  magnificent  via- 
ducts found  in  Paris,  France. 

Many  cities  prohibit  fences  enclosing  the  front  lawns  of  residences.  They 
also  require  lawns  to  be  planted  and  properly  cared  for  together  with  shade 
trees  planted  and  maintained.  The  result  is  block  after  block  and  street  after 
street  of  what  are  veritable  parks  in  which  the  citizens  take  a  vast  amount  of 
pride  and  with  which  they  would  not  dispense  for  love  nor  money.  One  thing 
leads  to  another  and  in  these  cities  one  can  hardly  find  a  yard  but  what  has  its 
flower  beds  filled  with  blooming  plants  together  with  clumps  of  shrubbery 
arranged  in  artistic  unison  with  the  whole  scheme  of  ornamentation. 

In  such  a  city  the  billboard  finds  small  chance  for  lodgment.  A  trip 
through  the  alleys  will  show  a  tidy  condition  where  closed  garbage  cans  contain 
the  refuse  from  the  kitchens  and  back  premises.  An,  advertising  card  tacked  on 
a  pole  would  stand  as  much  chance  of  sticking  as  the  tramp  who  was  continually 
being  kicked  off  the  train  by  the  brakeman  who  finally  asked  where  the  tramp 
was  going  and  received  the  reply  "to  Chicago  if  my  pants  hold  out."  Civic  pride 
and  city  loyalty  are  such  familiar  words  that  their  definition  is  on  the  tongue 
of  every  school  boy  and  girl.  Ornamentation  is  as  important  to  real  progress 
in  a  city  as  the  addition  of  new  industries. 


The  City  Beautiful.  Ill 


IV 
Street  Lighting 


The  archaic  system  of  street  lighting  is  a  thing  of  the  past  in  the  modern 
progressive  city.  The  old  arc  system,  which  at  best,  gives  a  circle  of  light  only  a 
few  feet  in  diameter  is  fast  disappearing  and  in  its  stead  comes  the  use  of  small 
Tungsten  lamps  on  standards  and  arranged  in  arches.  The  result  is  practically 
the  turning  of  night  into  day.  Besides  the  ornamentation  of  the  street  it  is  re- 
marked upon  by  every  visitor  who  has  any  faculty  of  observation. 

One  of  the  earliest  cities  in  this  country  to  adopt  this  system  was  Minne- 
apolis, Minnesota.  The  movement  was  promoted  by  one  of  the  commercial 
organizations  of  that  city.  It  was  found  that  the  city  administration  was  ad- 
verse to  spending  a  large  amount  of  money  for  the  installation  of  an  elaborate 
system.  Consequently,  it  was  decided  to  try  the  plan  out  on  two  or  three  blocks 
of  one  of  the  main  streets. 

A  committee  from  the  commercial  organization  visited  the  merchants  doing 
business  in  the  section  which  it  was  desired  to  improve  and  secured  from  them 
agreements  that  they  would  install  the  system  themselves  as  an  experiment. 

As  soon  as  this  work  was  completed  and  the  lights  were  turned  on,  almost 
immediately  popular  sentiment  demanded  the  installation  of  a  more  complete 
system  and  today,  Minneapolis  has  miles  of  streets  lighted  by  the  Tungsten 
lamps  set  on  ornamental  iron  standards. 

Other  cities  caught  on  very  rapidly  and  today  it  would  be  difficult  to  men- 
tion all  which  have  adopted  this  system  of  street  lighting  in  whole  or  in  part. 
Some  which  may  be  mentioned  are  Indianapolis,  Indiana,  Cincinnati,  Ohio,  Day- 
ton, Ohio,  Warren,  Ohio,  Pine  Bluff,  Arkansas,  New  York  City,  Chicago,  Illi- 
nois, Toronto,  Ontario,  Washington,  D.  C,  Abeline,  Kansas,  South  Bend, 
Indiana,  and  one  might  go  on  almost  indefinitely  mentioning  others. 

Besides  the  system  of  street  lighting  with  the  use  of  ornamental  standards 
and  Tungsten  lamps  other  systems  have  appeared  such  as  the  arch  system  and 
the  flaming  arc  system,  both  of  which  are  improvements  over  the  old  arc  sys- 
tem. The  arch  system  consists  of  a  string  of  small  incandescent  lamps  stretched 
from  one  side  of  the  street  to  the  other  at  regular  intervals  along  the  length  of 
the  street.  The  chief  objection  to  this  system  is  that  it  gives  a  city  an  appearance 
of  celebrating  some  special  event  because  of  the  appearance  of  impermanency 
which  is  not  to  be  found  in  the  system  where  ornamental  standards  are  used. 

The  flaming  arcs  first  appeared  when  they  were  used  by  some  enterprising 
business  establishments  for  the  purpose  of  advertising  by  attracting  attention 
to  their  places  of  business  on  account  of  the  great  light  emanating  from  these 
arc  lamps.  Some  of  the  cities  then  adopted  the  plan  of  using  the  flaming  arcs 
for  street  illumination  by  placing  these  lamps  at  regular  intervals  up  and  down 
the  street.  They  were  installed  from  poles  set  in  the  sidewalks  and  in  the 
middle  of  the  street  as  is  the  common  method  of  installing  the  old  arc  system. 

The  cities  which  have  ornamental  street  lighting  have  almost  without  excep- 
tion found  it^ impossible  at  first  to  secure  the  installation  and  maintenance  from 
the  city  administration.     The  excuse  has  always  been  that  the  system  costs  so 


112  City  Building. 


much  more  than  the  old  arc  system  and  for  that  reason  the  city  officials  felt 
that  they  would  not  be  justified  in  adding  to  the  city  expense  this  extra  cost. 

In  most  cases  the  manner  in  which  this  difficulty  has  been  met  has  been 
similar  to  that  adopted  by  Minneapolis  as  stated  above.  Usually  the  commercial 
organization  after  making  a  careful  estimate  of  the  cost  of  installation  and  the 
cost  of  maintenance  per  annum  of  the  system,  would  appoint  committees  to 
secure  subscriptions  from  the  merchants  on  the  main  streets  of  the  city  to  pay 
for  the  cost  of  installation.  After  the  subscriptions  were  secured  then  the 
proposition  was  made  to  the  city  administration  that  the  city  should  pay  the 
maintenance  cost  which  includes  the  repainting  of  the  standards,  the  keeping  of 
the  globes  and  lamps  in  good  condition  and  the  purchasing  of  the  electric 
current 

There  is  no  city  on  record  which  has  adopted  this  system  which  has  gone 
back  to  the  old  system.  Its.  success  has  been  uniform  and  the  increased  number 
of  cities  dropping  the  old  arc  system  for  the  new  ornamental  lighting  is  prima 
facie  evidence  of  satisfaction. 

The  Department  of  Commerce  and  Labor  at  Washington,  D.  C,  has  issued 
a  number  of  special  bulletins  which  would  be  of  particular  value  to  those  con- 
templating the  adoption  of  ornamental  street  lighting.  A  request  to  the  Depart- 
ment of  Commerce  and  Labor  will  secure  these  bulletins  free  of  cost  to  any 
applicant.  The  title  of  them  are  "Lighting  of  principal  streets  of  London,  Paris, 
Berlin,  Brussels  and  Vienna;"  "Gas,  water,  electric  light,  street  car  and  telephone 
service  in  various  cities,"  issued  September  3,  1907,  and  in  Special  Consular 
Reports  No.  42  is  a  special  article  on  street  lighting  in  Europe. 

Hamilton,  Ohio,  has  installed  the  ornamental  cluster  system  and  the  method 
adopted  is  that  the  merchants  are  charged  $1.00  per  front  foot  per  year  for  five 
years.  This  money  is  paid  to  the  city  and  the  city  installs,  maintains  and 
operates  the  system. 

Usually  the  standards  contain  a  cluster  of  five  lamps,  one  large  one  in  the 
center  on  top  and  the  other  four  smaller  lamps  are  placed  on  four  short  arms 
immediately  below  the  large  center  lamp.  The  stardards  are  placed  at  inter- 
vals varying  from  50  to  100  feet  apart  on  both  sides  jf  the  street. 

Ornamental  street  lighting  is  a  valuable  municipal  asset  because  the  stand- 
ard system  looks  well  both  night  and  day  and  it  increases  property  values  by 
making  the  city  attractive  for  home  makers  and  visitors;  by  making  the  prop- 
erty itself  safer  from  attacks  by  thieves  and  burglars;  by  drawing  trade  which 
"follows  the  light,"  and  by  stopping  the  waste  of  taxpayers'  money  paid  for 
light  they  do  not  get. 


The  City  Beautiful.  113 


V 
Billboard  and  Smoke  Elimination 


The  elimination  of  both  billboards  and  the  smoke  nuisance  in  a  city  is  really 
a  matter  to  be  taken  care  of  by  public  sentiment.  If  the  people  of  a  community 
desire  to  rid  themselves  from  these  drawbacks,  they  can  effectively  stop  every 
bit  of  it  but  if  they  do  not  desire  their  elimination,  then  results  cannot  be  accom- 
plished until  the  desire  for  riddance  has  been  created,  and  the  only  effective  way 
in  which  such  a  desire  can  be  created  is  through  the  means  of  a  campaign  of 
education,  where  through  the  constant  use  of  newspapers,  mass  meetings  and 
various  forms  of  publicity  the  public  is  shown  the  detrimental  side  of  the 
nuisances. 

Some  of  the  objections  to  the  billboards  are  that  they  disfigure  the  land- 
scape, and  the  view,  thereby  destroying  property  values.  For  example, 
directly  opposite  Eden  Park  in  Cincinnati,  one  of  the  most  beautiful  scenic  parks 
to  be  found  in  this  country,  is  a  high  hill  which  is  nearly  covered  with  tremend- 
ous billboards  advertising  some  sorts  of  tobacco,  liquors,  soaps,  medicine  and 
other  numerous  articles.  The  natural  view  from  the  eleven  car  lines  which 
pass  this  point  would  be  much  more  delightful  than  the  curt  command  to  "Chew 
Climax  Plug"  or  "Try  Hunter's  Rye." 

Directly  opposite  the  Carnegie  Institute  in  Pittsburgh  and  immediately  next 
to  one  of  Pittsburgh's  finest  hotels  at  this  writing  are  vacant  lots  which  are 
"graced"  with  spacious  expanses  of  billboards.  These  boards  have  depreciating 
effects  not  only  on  the  property  where  they  are  located  but  also  on  the  surround- 
ing property. 

The  billboard  is  frequently  a  nuisance  and  danger  to  property  in  its  neigh- 
borhood. The  fire  chiefs  of  all  large  cities  testify  that  it  is  a  delay  and  a  handi- 
cap to  firemen.  Frequently  firemen  have  to  cut  a  way  through  a  sign  board,  or 
demolish  it  altogether,  before  effective  work  can  be  done  on  the  fire  raging  be- 
hind it.  But  slight  reflection  is  needed  to  show  how  dangerous  such  a  structure 
would  be  in  large  cities  and  narrow  streets. 

The  billboard  is  frequently  dangerous  to  health.  It  has  been  found  in  many 
cities  that  the  spaces  behind  billboards  have  become  unpleasant  nuisances,  since 
many  careless  people  have  used  these  spaces  as  a  common  dumping-ground, 
where  enormous  amounts  of  filth  have  been  deposited  for  the  reason  that  such 
spaces  are  well  screened  from  the  streets.  In  this  way  the  sanitary  officers  of 
many  cities  declare  that  the  entire  population  of  large  areas  has  become  sub- 
jected to  the  danger  of  serious  disease.  This  consideration  has  led  some  cities, 
which  undertake  to  control  the  erection  and  maintenance  of  billboards,  to  make 
it  compulsory  that  they  be  built  with  an  open  space  of  several  feet  from  the 
ground  to  the  billboard  structure  itself. 

Probably  a  much  more  serious  objection  to  billboards  in  their  most  familiar 
form  is  the  unwholesome  nature  of  the  advertising  displayed  upon  them.  Moral 
agencies  indict  them  because  they  are  so  frequently  used  to  advertise  lurid  and 
sensational  plays  and  alcoholic  beverages. 

In  some  cities  where  the  nuisance  of  the  billboard  has  become  one  of  large 
proportions,  business  men,  women's  clubs,  and  many  organizations  having  for 
their  object,  either  primarily  or  incidentally,  the  bettering  of  civic  conditions, 


114  City  Building. 


refuse  to  trade  with  those  people  or  patronize  those  interests  which  advertise  in 
objectionable  ways.    In  some  cases  a  protest  of  this  kind  has  been  sufficient. 

A  large  number  of  cities,  suffering  seriously  from  billboard  evil,  have  under- 
taken to  curtail  it,  or  do  awa£  with  it  altogether.  Among  those  cities  are  Chicago, 
from  which  arises  a  case  in  which  the  Supreme  Court  of  Illinois  affirmed  the 
right  of  the  police  to  censure  immoral  posters,  Montclair,  Worcester,  Cincin- 
nati, Cambridge,  San  Francisco,  Seattle,  and  Washington.  In  the  last  city 
the  Commissioners  of  the  District  a  year  ago  agreed  to  refuse  any  more  permits 
for  the  erection  of  billboards,  the  records  showing  that  from  January  1  to  July 
15,  1909,  permits  were  granted  for  billboards  on  182  walls  and  56  fences. 

Under  the  laws  of  some  states  cities  and  towns  exercise  a  licensing  power 
over  billboards,  and  the  ordinances  which  control  this  matter  prove  the  feeling 
of  impatience  and  desperation  of  the  framers  of  the  ordinances,  for  they  leave 
but  small  comfort  to  the  erectors  of  billboards. 

With  regard  to  the  smoke  nuisance,  the  best  work  of  a  primary  character 
for  elimination  is  with  the  makers  of  the  smoke  themselves.  A  study  of  the 
question  will  show  any  manufacturer  that  he  is  losing  money  in  the  waste  of 
energy  going  up  his  chimneys  in  dense  clouds  of  black  smoke  a  great  percentage 
of  which  waste  could  be  economically  eliminated  by  the  installation  of  smoke 
consumers  and  automatic  stokers. 

Information  along  this  line  can  be  secured  upon  request  from  the  University 
of  Pittsburg  which  maintains  a  department  looking  to  the  study  and  abatement 
of  the  nuisance.  The  Department  of  the  Interior  has  issued  a  bulletin  on  the 
extent  to  which  measures  have  been  taken  in  cities  for  smoke  prevention  and 
the  means  adopted  and  the  progress  made  toward  smoke  abatement  on  loco- 
motives and  stationary  power  plants. 

H.  M.  Wilson,  the  head  of  the  Bureau  of  Mines,  says  that  the  cities  need 
good  ordinances  providing  for  inspectors  at  moderate  salaries;  that  the  best 
medium  for  abatement  is  through  the  city's  Board  of  Health;  that  the  city 
should  stand  half  the  expense  of  installing  smoke  consumers  and  that  the  in- 
spector in  making  an  inventory  of  such  chimneys  should  prove  to  the  owners 
their  money  loss  and  should  co-operate  with  them  without  compelling  them  to 
change  to  the  right  system. 

The  smoke  nuisance  levies  an  annual  tribute  from  Chicago  of  $17,000,000 
for  damage  done  while  the  economic  loss  in  waste  is  estimated  at  the  enormous 
figure  of  from  $300,000,000  to  $500,000,000. 


The  City  Beautiful.  115 


VI 
Clean-up  Days 


For  sanitation  and  health,  for  the  prevention  of  destruction  of  property 
by  fire,  for  the  beauty  of  the  city  and  for  the  reason  that  "cleanliness  is  next  to 
godliness,"  clean-up  days  are  imperative  necessities  in  all  cities,  large  and  small 
alike.  These  special  seasons  when  the  Mayor  issues  a  proclamation  to  the  citizens 
to  look  to  it  that  the  premises  of  their  business  establishments  as  well  as  their  resi- 
dences are  thoroughly  cleansed  of  refuse  and  rubbish  of  every  description  are 
of  comparatively  recent  origin  and  since  their  inauguration  have  grown  in  popu- 
larity until  now  there  are  few  cities  of  even  minor  importance  but  have  one  or 
more_  such  cleaning  campaigns  in  the  course  of  every  year. 

It  is  a  pity  however,  that  such  campaigns  should  be  necessary.  In  some 
few  cities,  they  are  unnecessary  because  the  citizens  are  so  filled  with  civic  pride 
that  they  keep  their  property  in  a  thoroughly  clean  condition  all  of  the  time. 
But  the  average  American  city  has  not  yet  paused  sufficiently  long  in  the  mad 
scramble  for  increased  population  to  develop  the  asthetic  side  (as  it  is  regarded 
by  so  many  business  men)  of  city  building  or  development. 

But  competition  in  trade  has  become  so  sharp  in  all  branches  of  business 
activity,  that  it  has  forced  the  merchant  to  study  his  business  carefully  for  the 
purpose  of  finding  and  stopping  little  leaks,  so  small  in  fact  that  a  few  yelars 
ago  he  would  not  give  them  a  second  thought.  He  is  realizing  today  that  a 
clean  place  of  business  is  more  attractive  to  the  average  customer  than  a  dirty 
store  with  unkempt  surroundings.  He  knows  that  refuse  and  rubbish  increases 
the  fire  hazard  on  his  property  and  that  he  has  to  pay  for  the  dirt  in  increased 
cost  of  insurance. 

Although  the  average  citizen  realizes  these  statements  as  facts,  still  con- 
certed action  and  continuous  action  for  cleanliness  has  not  yet  been  secured 
and  consequently  it  is  necessary  to  have  the  clean-up  campaigns.  The  usual 
method  of  conducting  such  a  campaign  is  as  follows :  The  Board  of  Health 
informs  the  Mayor  of  unsanitary  conditions  resulting  from  foul  alleys  and 
premises.  The  Mayor  issues  a  proclamation  designating  one  or  more  days  to 
be  known  as  clean-up  days  and  calling  upon  all  citizens  to  give  their  premises 
a  thorough  cleaning.  The  city  makes  arrangement  for  the  disposal  of  all  rub- 
bish collected  from  private  property  and  announces  that  if  citizens  will  have  the 
rubbish  piled  in  convenient  places  it  will  be  carried  away.  Many  times  the  in- 
surance people  will  give  valuable  assistance  in  the  campaign  in  showing  how 
cleanliness  will  decrease  insurance  premiums  and  other  questions  of  similar 
character.  The  commercial  organization  and  civic  clubs  get  behind  the  move- 
ment and  all  working  together  generate  sufficient  enthusiasm  in  the  campaign  as 
to  cause  the  whole  city  to  bestir  itself  to  get  clean. 

Many  cities  have  ordinances  which  compel  the  citizens  to  keep  their  prem- 
ises clean.  Fines  are  provided  for  violations.  Other  ordinances  provide  fines 
for  expectorating  on  sidewalks  and  in  public  buildings,  fines  for  tacking  cards 
and  signs  on  poles  and  fences  and  also  making  it  an  offense  to  scatter  bills  on 
the  streets  and  in  the  yards  of  residences.  Other  ordinances  are  passed  looking 
to  the  questions  of  sanitation.  The  Bureau  of  the  Treasury  Department  issues 
the  Public  Health  Reports  which  contain  ordinances  for  sanitation  passed  by 
cities  of  more  than  25,000  population  since  January  1,  1910. 


116  City  Building. 


One  of  the  most  unique  clean-up  campaigns  ever  inaugurated  was  that 
prosecuted  by  the  Boy  Scouts  in  London.  On  a  certain  day  all  of  the  boys  of 
the  Scouts  were  asked  to  band  together -and  go  out  through  the  entire  city 
picking  up  paper  strewn  around  by  carelessness.  The  boys  entered  into  the 
work  with  surprising  zeal,  making  play  out  of  work,  and  at  the  close  of  the  day 
the  largest  city  in  the  world  was  cleaner  than  it  had  ever  been  in  its  entire 
history. 

The  New  Woman's  Club  of  Leesburg,  Virginia,  to  awaken  public  interest 
against  the  fly  and  in  favor  of  cleaner  streets  invited  all  the  townspeople  to  a 
"civic  rally,"  which  consisted  of  a  popular  lecture  on  the  City  Beautiful,  fol- 
lowed by  two  scenes  in  pantomime.  The  first  showed  a  village  street — the  pave- 
ment and  gutters  littered  with  papers,  orange  peel  and  peanut  shells — booods 
and  barrels  on  the  sidewalk,  and  old  pieces  of  meat  hanging  in  front  of  the 
butcher  shop.  A  big  basket  marked  "For  Waste  Paper  and  Trash"  stood  at  the 
street  corner.  Along  this  street  loitered  a  score  of  people  representing  the  vil- 
lage population ;  the  business  man,  the  butcher  boy,  the  nursemaid,  two  colored 
boys,  two  colored  girls,  the  old  farmer  in  town  for  the  day,  and  a  group  of 
school  children;  and  all  of  them  as  they  sauntered  along  threw  more  waste  into 
the  street.  The  school  children  scattered  banana  skins  and  orange  peel,  and 
every  one  threw  down  bits  of  paper,  utterly  disregarding  the  waste  basket. 

The  "After"  scene  showed  the  street  perfectly  clean,  the  same  people 
walked  along,  but  carefully  threw  all  their  waste  into  the  public  receptacle. 
After  the  program,  the  audience  dispersed,  enthusiastic  over  the  possibility  of 
clean  streets  in  Leesburg. 

The  Woman's  Club  of  Trenton,  Missouri,  offered  twenty-five  cents  a  hun- 
dred for  all  the  old  cans  gathered  from  alleys  and  vacant  lots.  But  they  were 
aghast  when  they  found  themselves  confronted  with  a  huge  pile  of  about  100,000 
of  these  apparently  indestructible  nuisances.  The  Town  Council,  ashamed  of 
the  lackness  of  the  street  cleaning  department  voted  to  pay  the  bill  and.  as  a 
further  evidence  of  repentance,  instituted  a  general  street  cleaning  crusade. 
The  Club,  freed  from  its  debt,  spent  the  same  amount  of  money  in  beautifying 
the  public  square  and  the  school  grounds. 


Education.  117 


CHAPTER  10. 

EDUCATION 


The  Duty  of  the  Commercial  Organization  to  the  School. 

Because  it  is  the  province  of  the  commercial  organization  to  assist  in  the 
development  of  all  phases  of  the  city's  life  and  activities  and  because  the  future 
of  the  city  is  dependent  upon  the  incoming  generations,  therefore  it  is  necessary 
and  vital  for  the  business  man  and  the  professional  man  to  do  all  in  his  power 
singly  and  through  co-operative  effort  to  increase  the  efficiency  of  the  public 
schools.  No  matter  how  good  the  public  school  system  of  a  city  may  be,  it  can 
be  made  better  and  the  better  the  system  becomes,  the  more  capable  it  is 
of  still  greater  growth  in  efficiency. 

That  the  commercial  organization  can  be  of  great  assistance  to  the  schools 
has  been  fully  demonstrated  in  such  cities  as  Dayton,  Ohio,  Worcester,  Mass., 
Erie,  Pa.,  Evanston,  111.,  and  many  others  where  the  chambers  of  commerce,  city 
clubs,  boards  of  trade,  art  leagues  and  similar  organizations  work  for  greater 
efficiency. 

In  Worcester,  Mass.,  the  Public  Educational  Association,  realizing  the 
importance  of  a  wide  intelligence  upon  school  affairs  at  home  and  else- 
where, made  a  very  comprehensive  study  of  school  conditions.  This  study 
embraced  conditions,  not  only  in  Worcester,  but  also  a  considerable  num- 
ber of  representative  American  cities.  The  result  of  this  investigation 
showed  that  the  public  school  system  of  Worcester  was  fully  as  efficient  as 
any  of  the  others  studied,  but  in  a  report  concerning  this  study,  Prof.  U. 
W.  Cutler  makes  the  following  statement,  showing  that  the  Worcester  As- 
sociation is  not  content  to  let  well  enough  alone,  but  intends  to  secure 
even  greater  efficiency  in  the  schools: 

"This  comparison  is  by  no  means  discreditable  to  our  home  institutions  in 
many  if  not  in  all  respects.  But,  discreditable  or  not,  we,  as  citizens,  ought  not 
to  close  our  eyes  to  the  great  movements  of  our  time,  for  the  city  or  town  that 
ignores  the  experience  of  other  communities  in  organizing  and  conducting  its 
public  affairs  neglects  one  of  the  most  important  means  for  civic  betterment  at 
home." 

The  fullest  publicity  was  given  this  report  by  the  Worcester  Board  of  Trade, 
the  commercial  organization  of  that  city.  The  Board  not  only  in  this  instance 
recognized  its  duty  to  the  schools  but  at  every  opportunity  seeks  to  secure  a 
greater  interest  in  the  educational  question  on  the  part  of  the  Worcester  citize'n- 
ship. 

Even  the  largest  of  the  American  cities  realizes  the  importance  of  genuine 
interest  of  the  lay  citizen  in  the  school  question.  In  New  York,  the  Citizen's 
Committee  oversees  groups  of  boys  and  girls,  who  in  their  school  rooms  are 
formed  in  self-governing  cities  or  republics,  which  system  serves  the  double  pur- 
pose of  teaching  the  children  self-reliance  and  also  governmental  systems  by 
practical  illustration. 

In  Erie,  Pa.,  the  Chamber  of  Commerce  has  as  one  of  its  standing  com- 
mittees, the  Industrial  School  Committee.     This  committee  has  been  making  a 


118  City  Building. 


comprehensive  study  of  the  question  of  industrial  education  as  a  part  of  the 
curriculum  of  the  Erie  schools  and  working  on  a  modus  operandi  to  secure  a 
complete  installation  of  this  branch  of  instruction  in  the  city  schools. 

Work  of  similar  character  has  been  prosecuted  with  great  success  by  the 
Educational  Committee  of  the  Chamber  of  Commerce  at  Dayton,  Ohio.  In  fact, 
in  the  more  progressive  cities  where  the  commercial  organization  has  realized 
that  its  bounden  duty  is  to  make  the  city  grow  in  all  sane  and  safe  ways,  an 
education  committee  is  numbered  among  the  standing  committees  and  the  mem- 
bers find  that  there  is  not  only  a  great  deal  of  work  for  them  to  accomplish 
but  also  a  work  which  will  yield,  for  the  future,  tremendous  actual  dividends 
of  a  commercial  character. 

The  commercial  organization  can  secure  special  endowments,  bequests  or 
benefactions  for  special  work  of  the  schools.  For  instance,  suppose  the  high 
school  laboratories  are  not  as  well  equipped  as  the  work  demands,  a  little  in- 
terest from  the  commercial  organization  will  secure  a  subscription  from  some 
public  spirited  citizens  sufficient  to  install  and  maintain  the  needed  apparatus. 
With  a  little  work  funds  can  be  secured  for  gardens  where  the  children  can 
learn  the  fundamental  principles  of  agriculture.  Manual  training  has  been  in- 
troduced in  the  schools  of  a  number  of  cities  by  this  method. 

In  Lexington,  Kentucky,  the  Commercial  Club  assisted  in  a  whirlwind  cam- 
paign of  nine  days  to  raise  $25,000  by  popular  subscription  to  complete  a  fund 
to  build  a  Model  School  and  social  center  in  that  city.  Of  this  amount  of 
$25,000,  $15,000  was  raised  on  the  last  day. 

The  commercial  organization  can  be  of  great  assistance  in  compiling  in- 
formation on  various  subjects  connected  with  the  schools.  The  Bureau  of 
Education  of  the  Department  of  the  Interior  has  a  splendid  fund  of  data  on 
various  phases  of  the  American  school  question. 

It  is  a  notable  fact  that  in  recent  years,  since  the  business  man  has  aroused 
himself  to  an  interest  in  school  matters,  that  the  sentiment  has  been  growing 
apace  looking  to  the  elimination  of  impracticable  education  and  the  substitution 
of  the  practical,  as  typified  in  the  departments  of  manual  training  and  domestic 
science. 

The  commercial  organization  can  be  of  genuine  assistance  to  the  Board  of 
Education,  the  School  Committee,  or  whatever  the  name  may  be  by  which  the 
official  governing  body  of  the  school  system  is  known  in  matters  pertaining  to 
legislation.  A  needed  bond  issue  for  additional  school  buildings  and  facilities 
can  be  successfully  carried  by  this  aid.  By  working  co-operativejy  with  the 
School  Superintendent  and  Board  of  Education,  laws  which  are  needed  but 
which  cannot  be  secured  because  of  a  lack  of  public  interest  can  be  properly 
placed  before  the  public,  explained  and  their  passage  secured. 


Education.  119 


II 
The  Small  School  Board 


_  Like  the  movement  for  the  Commission  Form  of  Government  for  munici- 
palities which  has,  of  recent  years,  swept  this  country,  leaving  in  its  wake  a 
generally  conceded  reform  of  old  a'rchaic  methods  into  an  efficient  and  business- 
like administration  of  the  municipal  corporation,  the  movement  for  the  adoption 
by  cities  of  the  Small  School  Board  law  for  the  administration  of  the  affairs 
connected  with  the  public  school  system  is  spreading  throughout  the  country 
and  bids  fair  to  rival  in  popularity  commission  government. 

The  Small  School  Board  comes  as  a  result  of  active  interest  of  the  busi- 
ness man  in  questions  involving  the  progress  of  the  cities.  The  business 
world  is  today  demanding  greater  efficiency  in  the  young  graduates  of  the 
schools  and  in  order  to  obtain  it,  has  turned  its  attention  to  solving  the 
problem  of  how  to  make  the  schools  yield  larger  returns  in  efficiency.  The 
Small  School  Board  consequently  followed  this  interest. 

It  is  claimed  that  the  Small  School  Board  concentrates  responsibility 
and  authority,  thereby  giving  a  more  economical  and  wise  administration 
of  affairs;  it  is  claimed  that  it  eliminates  politics,  thereby  assuring  the  elec- 
tion of  the  best  available  men,  and,  in  short,  it  is  claimed  to  produce  a 
thoroughly  business-like  conduct  of  a  business  enterprise. 

Some  of  the  salient  points  in  a  model  form  of  the  Small  School  Board 
law  recently  adopted  by  one  of  the  medium  size  cities  are  cited  below: 

This  law  provides  that  the  entire  territory  within  the  city  limits,  or 
which  may  hereafter  be  taken  in,  shall  comprise  one  school  district  under 
the  jurisdiction  and  control  of  the  Board  of  Education,  and  that  the  title 
to  all  school  property  shall  be  vested  in  that  Board. 

The  usual  powers  and  duties  of  the  Board  are  prescribed  with  excep- 
tions as  enumerated  below.  The  number  of  members  of  the  Board  shall  be 
five  (it  should  be  stated  in  passing  that  this  number  is  the  usual  one). 

The  qualifications  of  members  are  stated  to  the  effect  that  no  person  under 
twenty-four  years  of  age  can  be  eligible  to  membership  and  he  must  be  a  resi- 
dent of  the  city.  A  member  cannot  be  connected  in  any  way  with  any  concern 
which  contracts  with  the  Board  for  the  buying  or  selling  of  anything. 

The  members  of  the  Board  serve  without  compensation  and  all  five  are 
elected  from  the  city  at  large  by  secret  ballot  for  a  term  of  four  years.  This 
election,  as  will  be  seen,  does  away  with  ward  representation,  thereby  elimi- 
nating ward  jealousy. 

The  secret  ballot  contains  all  of  the  nominated  candidates  and  is  a  separate 
sheet  from  all  other  ballots  to  be  voted  on  election  day.  This  ballot  is  to  be 
known  as  the  "School  Ticket"  and  must  not  contain  any  mark  or  emblem  which 
in  any  way  would  indicate  the  political  affiliation  of  any  candidate.  It  is  also 
unlawful  for  any  election  officer  to  in  any  way  indicate  the  political  affiliation 
of  any  candidate. 

Candidates  are  nominated  by  petition  filed  with  the  county  clerk.  Such 
nominating  petition  must  bear  the  names  of  at  least  one  hundred  legal  voters 
of  the  city. 


120  City  Building. 


The  names  of  all  candidates  are  printed  on  the  ballot  in  a  single  column. 
The  names  are  printed  in  alphabetical  order  on  the  first  fifty  ballots.  On  each 
succeeding  fifty  ballots  the  names  are  printed  in  the  same  order  save  that  the 
last  name  on  the  preceding  fifty  is  shifted  to  first  place  and  so  on  until  the  re- 
quired number  are  printed.  These  are  then  so  bound  for  each  voting  precinct 
that  each  candidate's  name  shall  appear  first  on  approximately  the  same  number 
of  ballots  as  that  of  every  other  candidate. 

It  is  made  compulsory  upon  the  county  sheriff  to  provide  a  separate  ballot 
box  in  which  the  ballots  in  the  school  election  must  be  deposited. 

There  is  also  a  provision  in  the  law  which  permits  a  special  election  day 
for  the  School  Board.  To  secure  the  change  in  date  it  is  required  that  a  peti- 
tion must  be  filed  with  the  county  judge  requesting  that  the  election  be  held  on 
some  other  day  than  the  regular  one.  This  petition  must  be  signed  by  at  least 
twenty  per  cent  of  the  total  number  of  votes  cast  at  the  last  preceding  presi- 
dential election.  Upon  the  filing  of  this  petition  the  county  judge  must  select 
a  day  for  the  special  election,  which  day  must  be  not  less  than  ninety  nor  more 
than  one  hundred  and  twenty  days  distant  from  the  date  when  the  judge  enters 
the  order  for  the  special  election. 

In  the  first  election  under  the  new  law,  the  voters  cast  their  ballots  for 
five  candidates  and  those  candidates  who  receive  the  greatest  number  of  votes 
are  the  elected  members.  After  election,  the  members  cast  lots  for  the  long 
and  short  terms  of  service  and  in  succeeding  years,  the  elections  are  held  to 
supply  the  vacancies,  caused  by  the  expiration  of  the  short  term  members 

The  office  of  clerk  of  the  Board  of  Education  is  aboli.shed  and  in  its  stead 
is  substituted  the  office  of  Business  Director.  This  officer  is  appointed  by  the 
Board.  He  is  placed  in  charge  of  all  the  business  affairs  of  the  public  school 
system,  amenable  at  all  times  to  the  Board.  He  employs  the  janitors  and 
other  employes  except  instructors  who  are  employed  by  the  Board.  He  pur- 
chases all  supplies  and  in  general  is  the  business  manager  of  the  School  Board. 
The  Board  employs  the  Superintendent  and  of  course  has  entire  control 
over  all  departments  of  the  public  school  system. 

From  the  above  it  will  be  seen  that  some  of  the  essentials  are  patterned 
after  the  plan  of  commission  government.  The  same  arguments  used  in  sup- 
port of  the  latter  are  advanced  in  favor  of  the  Small  School  Board.  The 
records  show  its  success  wherever  adopted. 


Education.  .  121 


III 
How  to  Advertise  the  City  Through  the  Schools 


The  first  condition  necessary  in  order  to  secure  publicity  through  the  schools 
is  to  have  the  advantages  and  resources  of  the  city  known.  "Know  thyself"  is 
the  motto  which  must  he  followed,  if  substantial  results  are  to  be  obtained. 
The  city's  commercial  organization  is  in  the  best  possible  position  of  any 
body  in  the  community  to  furnish  the  necessary  facts  and  figures  to  make 
known  these  advantages  and  resources.  "Knowing  the  city"  is  a  large  part  of 
the  work  of  this  representative  body  of  citizens.  For  this  reason,  if  for  no 
other,  this  organization  is  best  prepared  to  carry  on  the  work  of  making  public 
the  information  which  it  has. 

There  are  a  number  of  different  plans  for  presenting  the  city's  resources  to 
the  school  children.  Any  of  them  are  good.  The  sole  thing  important  in  all  of 
them  is  to  get  the  information  to  the  children  to  start  them  to  thinking  about 
the  city,  and  it  will  not  be  a  great  while  until  they  will  begin  to  talk  about  their 
city  and  to  discover  new  advantages  of  various  character  for  themselves. 

The  Education  Committee  of  the  commercial  organization  will  find  the  way 
to  co-operate  with  the  school  authorities  on  such  a  publicity  campaign.  In  some 
cities  the  work  has  been  carried  on  with  such  success  that  the  school  boards 
have  made  home  city  study  a  part  of  their  curriculum. 

This  committee  may  find  it  advantageous  to  have  some  of  the  prominent 
citizens  address  the  high  school  students  and  the  pupils  in  the  graded  schools 
on  various  branches  of  the  general  subject  of  knowing  the  home  city.  Such 
address  should  be  made  as  simple  as  possible  and  thoroughly  attractive.  Fea- 
tures should  be  treated  and  the  right  people  can  present  them  in  feature  style. 
One  or  two  points  in  connection  with  any  one  subject  or  feature  should  be  so 
forcibly  brought  out  that  they  will  be  retained. 

In  most  of  the  work,  however,  the  burden  falls  upon  the  teach- 
ers in  the  schools.  They  are  the  persons  who  come  in  daily  contact  with  the 
pupils,  who  know  them  and  consequently  know  how  to  impress  them.  A 
number  of  the  cities  present  the  home  city  study  to  the  teachers  alone  and 
through  them  to  the  pupils.  This  is  done  by  means  of  the  teachers'  meet- 
ings which  are  regularly  held. 

In  some  of  the  cities  where  the  home  city  study  is  made  a  part  of  the  regu- 
lar course  of  study,  a  graded  course  has  been  devised,  in  Which  the  kindergarten 
departments  are  taught  the  simplest  facts  and  more  complicated  subjects  treated 
from  grade  to  grade  in  ascending  order. 

Such  a  course  has  not  only  the  advantage  of  instilling  civic  pride  into  the 
hearts  and  lives  of  the  children — the  future  citizens — but  it  also  gives  valuable 
instruction  of  a  practical  character  on  many  useful  subjects. 

The  co-operation  of  the  superintendent  of  the  schools  is  vital  to  the  suc- 
cess of  the  above  plan.  Without  his  active  assistance,  nothing  like  the  results 
can  be  accomplished  as  with  his  help.  It  is  largely  through  him  that  the  co- 
operation of  the  principals  and  teachers  is  secured. 

Some  of  the  cities  conduct  studies  on  subjects  suggested  by  current  and 
local  events.    The  subject  of  a  proposed  bond  issue  which  is  to  be  submitted  to 


122  City  Building. 


the  voters  of  the  city  for  streets,  sewers,  parks  or  any  other  public  improve- 
ments furnishes  a  splendid  opportunity  to  not  only  impress  upon  the  children 
some  practical  lessons  on  the  financing  of  public  work,  but  the  mere  fact  that 
the  children  discuss  the  question  of  bonds  will  carry  the  subject  into  the  homes 
and  become  no  small  agency  in  assisting  in  the  successful  passage  of  the  bond 
issues.  Such  information  as  the  amount  of  bonded  indebtedness  which  the 
city  is  carrying  and  for  what  purpose  the  bonds  were  voted  can  be  easily  trans- 
mitted to  the  children  and  in  such  transmission  they  are  being  furnished  with 
some  additional  facts  concerning  their  home  city. 

The  ways  in  which  this  home  city  information  can  be  imparted  to  the  chil- 
dren are  almost  innumerable.  The  primary  thing  is  to  secure  the  co-operation 
of  the  School  Board,  the  superintendent  and  the  principals  and  teachers.  The 
knowledge  itself  and  the  way  in  which  it  is  to  be  imparted  to  the  children  will 
then  take  care  of  itself. 

After  the  children  have  begun  to  assimilate  this  home  city  information, 
theyt  through  simple  exuberance  and  enthusiasm,  will  tell  their  parents  and 
relatives  at  home  some  facts  which  they  have  not  realized.  This  will  cause 
these  older  citizens  to  think  more  about  their  home  city.  They  will  begin  to 
talk  more  of  its  advantages  and  resources  until  the  ultimate  result  will  be  that 
the  "little  child  shall  lead  them"  from  the  state  of  city  pessimism  into  that  of 
city  optimism. 

Further  than  this,  in  the  class  rooms,  the  pupils  of  one  grade  can  write 
letters  about  their  city  to  the  pupils  of  the  same  grade  in  other  cities  with  the 
result  of  giving  the  home  city  a  deal  of  publicity.  Besides  this,  the  pupil 
individually  can  choose  some  of  their  acquaintances  living  in  other  cities  and 
write  to  them  "boosting"  letters.  A  prize  or  series  of  prizes  for  the  best  letters 
can  be  offered.  Where  these  individual  letters  have  been  written  in  several 
different  cities  to  children  in  other  cities,  a  number  of  instances  have  been 
recorded  where  such  letters  have  led  to  the  actual  location  of  new  people  in  the 
city  and  in  some  cases  the  location  of  several  large  industries. 


Education.  123 


IV 
The  Effect  of  the  Schools  Upon  the  City  Beautiful 


The  city  that  makes  an  effort  to  secure  the  co-operation  of  the  school  chil- 
dren in  beautifying  the  city  has  made  a  long  step  in  the  direction  of  a  success- 
ful solution  of  the  problem  of  how  to  make  the  city  beautiful.  As  has  beefei 
said  elsewhere  in  this  book,  the  children  now  in  the  schools  are  the  future 
citizens  and  the  lessons  in  civic  progress  taught  them  will  not  only  bear  im- 
mediate fruit,  but  will  become  foundation  stones  of  city  building  ideas  and  ed- 
ucation in  the  days  when  they  assume  charge  of  their  life  work. 

Those  in  charge  of  the  great  work  of  building  cities  have  realized  that  to 
build  well  requires  time;  that  "Rome  was  not  built  in  a  day"  and  that  though 
a  boom  may  erect  a  city  under  certain  conditions,  still  the  average  creates  the 
rule  that  the  evolution  of  a  city  requires  many  years.  These  same  men  have 
also  reached  a  stage  of  sane  thinking  on  the  subject  of  city  building,  in  which 
serious  reasoning  they  have  come  to  the  logical  conclusion  that  they  must  appeal 
to  the  oncoming  generation  in  order  to  approach  the  realization  of  success.  So 
in  this  way  has  the  movement  resulted  in  the  addition  of  some  of  the  fun- 
damental truths  of  proper  city  building  to  the  education  of  the  children. 

One  of  these  fundamentals  is  that  it  is  the  duty  of  citizens  to  make  the  city 
the  best  place  possible  in  which  to  live  and  do  business.  When  this  funda- 
mental was  realized,  then  began  the  movement  to  create  the  city  beautiful,  to 
secure,  open  and  maintain  parks  and  playgrounds,  to  build  wide,  well-paved 
streets  and  boulevards,  to  build  civic  centers,  and  to  ornament  the  city  in  every 
practical  manner. 

And  now  the  cities,  realizing  how  hard  it  is  to  "tea"ch  old  dogs  new  tricks/' 
are  adopting  systematic  methods  of  showing  the  importance  of  this  funda- 
mental to  the  school  children.  The  results  have  been  surprising.  Where  the 
primary  hope  of  such  education  was  looked  for  in  later  years,  the  secondary 
hope  of  immediate  results  has  been  largely  realized,  in  that  the  children  have 
at  once  caught  on  and  in  many  instances  have  become  valuable  auxiliaries  of 
the  park  boards,  street  cleaning  departments,  the  health  boards  and  the  civic 
organizations  of  the  city. 

The  children  have  been  quick  to  understand  why  a  city  should  be  made 
beautiful  and,  their  bump  of  civic  pride  not  yet  having  been  knocked  off  in  the 
made  scramble  for  money,  they  have  become  large  factors  in  this  important 
work  of  building  a, city  right. 

The  example  set  by  the  New  York  Department  of  Street  Cleaning  in  organ- 
izing children  as  volunteer  aids  has  been  followed  by  many  other  organizations. 
While  this  particular  work  was  organized  for  the  primary  purpose  of  securing 
the  aid  of  the  school  children  in  keeping  the  streets  clean,  the  work  has  broad- 
ened until  it  now  takes  in  all  questions  concerning  the  city  beautiful  in  which  a 
child  can  be  useful. 

In  New  York  the  movement  is  carried  on  by  means  of  Juvenile  Leagues 
which  meet  in  the  public  schools  in  charge  of  the  teachers.  At  the  head  of 
each  is  a  superior  who  directly  supervises  the  organization  and  work  of  every 
league.    The  plan  of  organizing  may  be  briefly  stated  as  follows: 


124  City  Building. 


After  permission  from  the  principal  to  organize  a  league  at  a  school  is 
received,  a  teacher  is  assigned  to  act  as  director  and  take  charge  of  the  league. 
Delegates  are  then  elected  from  the  highest  grades,  who  meet  in  convention  in 
the  school  house  after  school  hours.  The  supervisor  explains  to  the  league 
their  duties  as  young  citizens  and  the  benefit  they  will  receive  by  organizing. 
The  delegates  elect  their  own  officers  and  adopt  a  constitution,  and  permanent 
officrs  are  installed.    Various  committees  are  appointed ;  and  the  work  is  on. 

If  the  teacher  assigned  as  director  is  an  enthusiastic  worker,  good  results 
will  follow.  If,  on  the  other  hand,  the  director  is  indifferent,  the  league  will 
eventually  disband,  and  the  work  of  organizing  is  a  waste  of  time. 

The  children  are  enthusiastic ;  but  this  enthusiasm  must  be  kept  up  by 
encouraging  words,  by  impressing  upon  the  young  people  their  importance  as 
young  citizens.  The  volunteers  are  anxious  to  receive  the  badges  of  honor 
which  are  given  them  for  merit  and  they  are  proud  to  wear  them.  They 
are  of  German  silver,  and  bear  the  coat  of  arms  of  the  City  of  New  York 
and  the  motto,  "We  are  for  clean  streets."  The  volunteers  must  demon- 
strate their  willingness  to  do  their  duty  as  citizens  to  receive  them.  This 
attitude  on  their  part  is  made  known  when  they  submit  a  report;  if  the 
report  is  a  good  one,  a  badge  is  given,  not  as  an  inducement,  but  as  a  re- 
ward of  merit. 

The  school  and  street  committee  are  assigned  to  duty  in  and  around  the 
school  house,  to  prevent  pupils  from  throwing  paper  and  leaving  parts  of  their 
lunches  on  the  playgrounds  and  in  front  of  the  school  house.  These  committees 
take  pride  in  their  work,  with  the  result  that  the  school  houses  and  their  sur- 
roundings present  a  better  appearance.  The  sanitary  committee  call  upon 
all  tenants  who  block  their  fire  escapes,  and  inform  them  that  they  are  violating 
the  law.  They  also  urge  the  people  to  keep  their  homes,  halls  and  cellars  in  a 
sanitary  condition.  The  vigilant  committee  is  made  up  of  members  who  are 
in  the  very  highest  school  grades.  They  form  a  brigade,  and  take  charge  of 
the  blocks  in  which  they  live.  They  stop  people  from  littering  the  street,  in- 
struct janitors  to  take  in  the  receptacles  after  they  have  been  emptied  and  re- 
port landlords  who  do  not  supply  their  tenants  with  sufficient  and  proper  re- 
ceptacles. 


Education.  125 


V 
The  Relation  of  the  Schools  to  the  Industrial  Interests  of  the  City 


The  relation  of  the  schools  to  the  industrial  interests  of  the  city  and  vice 
versa  should  be  one  of  co-operation,  not  the  dormant  kind,  but  the  active  and 
continuous  working  together  for  the  advancement  of  mutual  interests. 

The  schools  have  something  of  which  the  industrial  interests  of  the  city 
can  make  use  and  in  turn  these  industries  are  possessed  of  some  things  which 
it  is  necessary  that  the  schools,  or  rather  the  children  in  them,  should  use. 

The  industrial  interests  will  find  it  advantageous  to  their  business  welfare 
•to  have  the  school  children  know  as  much  about  their  businesses  as  practicable. 
In  the  first  place,  it  gives  these  industries  publicity  of  no  mean  character.  For 
example,  suppose  there  is  a  broom  factory  in  the  city.  If  the  children  of  the 
schools  are  taken  through  the  plant  and  care  is  taken  to  explain  to  them  the 
various  processes  through  which  the  broom  corn  is  taken  from  the  beginning 
to  the  time  it  is  shipped  away  in  the  form  of  "Made  Well''  whisk  brooms  or 
house  brooms,  the  children  cannot  help  but  be  impressed  with  the  sight  and 
their  talk  at  home  will  very  probably  cause  their  parents  to  call  for  "MadV 
Well"  brooms.  The  same  is  true  of  coffee-roasting  plants,  flour  mills,  planing 
mills,  and  all  the  other  plants  with  which  practically  every  city  is  equipped. 

In  those  cities  where  there  are  special  industries,  even  greater  benefits 
accrue  to  the  industries  through  making  the  process  of.  manufacture  known  to 
the  children.  These  industries  must  depend  very  largely  upon  these  children  to 
operate  their  machinery  in,  at  best,  only  a  few  years  hence.  Therefore,  the 
sooner  the  knowledge  of  the  uses  to  which  these  machines  are  put  is  given 
the  future  workmen,  the  quicker  will  he  or  she,  show  proficiency.  So  important 
has  this  point  become  with  many  industries  that  they  have  succeeded  in  getting 
the  schools  to  teach  the  simpler  processes  of  production  as  applied  to  those  in- 
dustries in  the  regular  manual  training  course  of  the  schools.  This  instruction 
is  of  course  graded,  and  by  the  time  the  student  has  completed  the  high  school 
course,  he  can  go  right  into  the  factory  and,  in  a  very  short  time  acquire  suf- 
ficient proficiency  to  overtake  other  workmen  who  have  been  in  the  plant  for 
years. 

The  manual  training  courses,  which  in  only  recent  years  have  been  intn> 
duced  in  practically  every  city  of  size  in  the  country,  have  come  from  the'de-* 
mand  of  the  country's  industrial  interests  for  more  efficient  men.  It  is  the 
advent  of  practical  education — the  kind  that  fits  the  boy  to  do  something — that 
fits  him  to  make  practical  use  of  the  theoretical  knowledge  with  which  his  mind 
is  crammed. 

The  schools  in  turn  find  that  the  industries  of  the  community  offer  a  splen- 
did opportunity  for  getting  to  the  pupils  knowledge  in  a  practical  way  and  in 
such  a  manner  that  they  retain  what  they  have  learned.  Such  a  method  of 
teaching  develops  to  a  high  order  the  power  of  observation,  which  is  recognized 
as  one  of  the  four  fundamentals  of  education.  Some  of  the  most  successful 
teachers  conduct  excursions  of  their  grades  to  various  industrial  plants  in  their 
vicinity.  A  definite  time  is  set  and  the  management  in  most  cases  take  particu- 
lar pains  to  thoroughly  explain  in  a  simple  manner  the  various  processes  or 
steps  in  production,  carefully  calling  attention  to  the  functions  of  the  differ- 


126  City  Building. 


ent  human-like  machines,  and  end  up  with  a  short,  simple  talk  on  how  the 
finished  product  is  marketed  and  in  what  parts  of  the  country.  When  the 
pupils  return  to  their  school  room  they  are  instructed  to  write  composi- 
tions on  what  they  have  seen  at  the  factory.  By  this  method  they  really 
learn  not  only  the  important  fact  that  such  industries  have  their  home  in 
their  city,  but  also  how  those  industries  operate. 

It  is  such  work  as  this  which  is  really  building  a  city  for  the  future.  At 
the  same  time,  it  has  the  additional  advantage  of  accomplishing  immediate  good. 

There  are  many  cities  in  America  which  would  like  to  have  the  benefit  of 
the  factory  payroll.  Many  of  them  find  that  they  have  all  of  the  requisites  of  a 
good  location  for  certain  industries  with  the  exception  of  an  adequate  supply 
of  labor  more  or  less  skilled.  If  such  a  city  will  begin  with  the  schools  and 
teach  the  pupils  in  them  industrial  education  as  far  as  it  is  possible  with  the 
means  at  hands,  it  will  not  be  many  years  before  the  city  will  have  trained  a 
new  generation  of  young  people  who  can  easily  and  quickly  adapt  themselves 
to  the  particular  work  found  in  the  average  factory.  Efficiency  in  this  line  of 
endeavor  will  increase  as  time  passes  and  so  the  city  will  furnish  a  supply  of 
labor  (raw  it  may  be  but  easily  adaptable  because  of  this  early  training),  which 
will  induce  the  location  of  the  desired  industries  and  guarantee  their  per- 
manency in  the  community. 

But  to  secure  such  a  condition  there  must  be  co-operation  between  the 
school  authorities  and  the  industrial  interests.  Those  in  charge  of  the  schools 
must  see  the  need  of  such  an  education  for  the  children  to  the  extent  that  they 
will  willingly  incorporate  such  studies  in  the  curriculum  and  enthusiastically 
carry  out  such  a  course  of  training.  On  the  other  hand  the  industrial  interests 
must  awake  to  the  necessity  of  supplying  their  future  demands  for  labor  to 
such  an  extent  that  they  will  insist  upon  such  instruction  for  the  children  from 
the  school  authorities  and  then  work  hand  in  hand  with  them  to  secure  the 
utmost  efficiency  with  the  least  cost  and  loss  of  time. 

These  two  factors  will  bring  the  success  desired  and  any  other  method  will 
be  found  wasteful  of  time  and  energy,  if  successful  at  all. 


Education.  127 


VI 
Practical  Education 


The  demand  for  increased  efficiency  has  come  as  a  result  of  intense  spe- 
cialization, which  in  turn  is  a  result  of  the  evolution  of  industry.  In  the  earliest 
times,  production  was  accomplished  by  the  one  man  power  under  great  expense 
because  of  a  lack  of  efficiency.  But  today  production  is  almost  exclusively 
carried  on  by  large  industries,  thoroughly  organized  and  highly  efficient.  These 
industries  are  at  the  pinnacle  of  present  day  economical  production. 

Perhaps  an  illustration  will  not  be  amiss.  The  first  locomotives  were  large- 
ly manufactured  by  one  man  while  today  in  the  Baldwin  Locomotive  Works,  it 
takes  the  combined  efforts  of  hundreds  of  workmen  to  turn  out  each  engine, 
one  man  putting  in  certain  rivets  in  the  firebox,  another  watches  a  turning  lathe 
as  it  shapes  the  piston  rods  and  another  polishes  the  bright  irons  and  brasses, 
while  the  other  hundreds  have  each  his  particular  task.  The  work  of  all,  when 
assembled,  completes  the  iron  horse.  Each  workman  knows  how  to  do  his 
particular  work  better  than  anything  else.  He  has  done  it  so  much  that 
there  are  no  lost  motions,  and  every  minute  of  his  factory  time  is  occu- 
pied in  efficient  production. 

Besides  this,  the  office  is  managed  in  like  manner.  The  scores  of  clerks 
have  each  a  special  duty.  There  are  cost  keepers,  invoice  checkers,  payroll 
clerks,  and  many  other  grades.  Over  all  is  the  general  manager,  or  superin- 
tendent. 

In  like  manner  the  professions  have  of  late  years  become  subdivided  into 
specialists.  Consequently,  we  have  lawyers  who  devote  their  entire  time  to 
criminal  practice,  others  who  are  adepts  in  civil  practice.  Again  these  two  great 
branches  are  divided  into  smaller  classes.  The  result  is  a  host  of  patent  attor- 
neys, corporation  lawyers,  constitutional  lawyers  and  a  number  of  others. 

The  family  physician  who  treated  everything  from  a  sort  toe  to  an  ear- 
ache has  almost  disappeared  to  give  way  to  the  specialist.  Consequently,  we 
have  physicians  and  surgeons  who  devote  their  talents  to  the  cure  of  cancers, 
stomach  troubles,  nervous  diseases,  diseases  of  the  eye,  ear,  nose  and  thrdat 
and  in  fact,  the  disorders  of  practically  every  organ  and  function  of  the  body 
and  mind. 

Even  the  profession  of  the  clergy  has  become  divided  into  specialists  until 
wo  recognize  the  pastor,  the  missionary,  the  evangelist  and  the  Sunday 
school  worker.  A  glance  at  any  of  the  professions  will  reveal  like  condi- 
tions.    Some  one  has  said  truly  that  this  is  the  day  of  specialization. 

Not  only  that  but  the  future  holds  out  the  prospect  of  still  greater,  or 
rather  more  minute  or  intense  specialization.  This  is  supremely  the  day  of  the 
survival  of  the  fittest  and  the  man  who  can  do — who  is  fit — secures  patronage. 

The  demand  for  fit  men  has  increased  in  greater  ratio  than  the  supply. 
There  is  a  cry  in  every  line  of  activity,  commercial,  industrial,  and  professional 
for  men  who  are  more  efficient — men  who  can  do  more — men  who  are  more  fit. 

The  brains  of  the  country  have  recognized  this  shortage  and  are  now  turn- 
ing their  attention  to  increasing  the  supply.  The  first  efforts  have  been  toward 
increasing  the  efficiency  of  the  men  who  are  now  in  business,  in  factories,  in 
professions.     Hence  the  advent  of  the  special  schools  and  the  correspondence 


128  City  Building. 


schools.  Many  institutions  maintain  their  own  schools  in  their  own  establish- 
ments, securing  for  instructors  some  of  the  leading  men  in  their  various  lines 
of  endeavor.  Classes  in  economics,  salesmanship,  accounting,  and  in  fact  all 
the  different  branches  of  the  business  are  conducted  to  give  the  men  now  em- 
ployed the  opportunity  of  increasing  their  efficiency,  and,  therefore,  their  worth 
to  their  employers. 

These  men  who  have  recognized  the  shortage  in  the  supplv  of  efficient 
workmen  have  directed  their  secondary  efforts  to  increasing  the  efficiency  of  the 
schools  along  the  lines  of  practical  education.  It  is  their  contention  that  under 
former  methods  of  instruction,  the  pupils  were  graduated  into  helplessness ; 
that  they  did  not  study  subjects  in  school  which  would  give  them  the  right> 
start  in  any  of  the  technical  professions.  < 

Manual  training  has  been  introduced  in  the  best  schools  with  the  result" 
that  the  pupils  learn  the  uses  of  tools  and  when  they  are  graduated  they  can 
be  taught  the  use  of  larger  and  more  important  or  intricate  tools  much  more« 
easily  and  quickly.  Consequently,  they  are  able  to  take  their  places  in  the  ranks 
of  skilled  workmen  in  most  cases  many  years  sooner  than  formerly.  > 

But  there  is  an  increasing  demand  for  greater  efficiency  in  this  work  of  the> 
schools  even.  The  age  at  which  an  individual  chooses  his  life's  occupation  is 
constantly  decreasing.  Today  the  student  entering  the  high  school  has  prac- 
tically determined  what  profession  or  business  he  expects  to  enter  and  so  ad- 
justs his  course  of  study.  Only  a  few  years  ago  this  decision  was  not  reached 
by  the  student  until  his  entrance  upon  the  college  course.  Formerly  all  high 
school  students  studied  practically  the  same  course  whereas  today  the  average 
high  school  curriculum  embraces  perhaps  six  or  eight  courses,  each  de- 
signed to  train  the  student  for  a  special  line  of  work. 

The  reason  underlying  these  efforts,  as  said  before,  is  the  demand  for  in- 
creased efficiency.  More  managers  are  demanded  today  than  ever  before — 
men  who  have  been  so  trained  in  efficiency  that  they  can  handle  big  busi- 
ness at  the  least  cost  and  waste  of  time,  money  and  energy — men  who  can 
increase  the  profits  of  business — men  who  can  do  their  work  better  than 
others.  This  is  one  huge  result  of  competition.  It  demands  constantly 
something  better. 

Therefore,  the  city  which  recognizes  the  demands  of  the  future  for  prac- 
tical education  and  is  setting  about  to  supply  that  demand  by  giving  the  dn- 
coming  generation  an  education  of  practical  efficiency,  is  the  city  which  is  doing 
its  duty  by  its  children — its  future  citizens. 


Government  by  Commission.  129 


CHAPTER  11. 

GOVERNMENT  BY  COMMISSION 


Row  the  Plan  Originated  and  Its  Present  Status. 

Government  by  commission,  or  commission  government,  is,  in  a  sense, 
a  misnomer.  A  commission  in  its  definite  meaning  signifies  a  body  of 
men  who  are  appointed  to  do  a  certain  prescribed  work,  whereas,  under 
the  Commission  Form  of  Government,  the  men  who  compose  the  commis- 
sion are  not  appointed,  but  elected  to  their  offices.  The  mistake  probably 
arose  out  of  the  conditions  surrounding  the  first  city  in  this  country  to 
be  ruled  by  commission,  excepting  Washington.  That  city  was  Galves- 
ton, Texas. 

It  is  generally  conceded  that  the  form  of  municipal  government  gen- 
erally spoken  of  as  the  commission  form  originated  in  Galveston.  It 
was  in  Galveston  that  the  plan  was  first  adopted  providing  for  the  elec- 
tion of  commissioners  instead  of  the  appointment  of  them,  as  in  Wash- 
ington, where  the  city  has  been  governed  by  appointed  commissioners 
since  the  early  seventies. 

It  is  also  conceded  that  the  Galveston  plan  was  adopted  from  the 
pure  commission  form  in  use  in  the  District  of  Columbia,  where  the  com- 
missioners are  appointed  by  the  President. 

After  the  terrible  storm  at  Galveston,  the  municipal  government  in 
power  was  found  incapable  of  coping  with  the  situation.  Consequently 
martial  law  was  declared  and  a  commission  of  men  elected  to  govern  the 
city  during  the  period  of  recovery. 

This  plan  was  found  to  be  so  much  more  satisfactory  than  the  bi- 
cameral form  of  government  that  the  proper  laws  were  made  providing  for 
the  continuation  of  the  commission  form  instead  of  the  councilmanic  form. 
The  city  has  been  governed  by  the  Board  of  Commissioners  since  that  time. 

One  of  the  next  cities  to  adopt  the  plan  was  Houston,  Texas,  and  Des 
Moines,  Iowa,  quickly  imitated  her.  This  city  has  become  famous  for  its 
advocacy  of  the  plan.  It  has  been  used  as  the  basis  of  a  very  extensive 
advertising  campaign  and  to  the  efforts  of  Des  Moines  and  her  citizens, 
composing  the  Greater  Des  Moines  Committee,  is  largely  due  the  center- 
ing of  the  attention  of  the  cities  of  this  country  upon  this  form  of  gov- 
ernment, with  the  result  that  today  nearly  every  State  in  the  Union  han, 
through  their  several  legislatures,  passed  enabling  acts  giving  to  their 
cities  the  right  to  adopt  the  plan  in  some  form  or  other. 

The  latest  available  statistics  show  the  following  growth  of  govern- 
ment by  commission  in  the  United  States: 

On  September  3rd,  1912,  the  State  of  Ohio  passed  the  Home  Rule 
amendment  to  the  State  Constitution,  which  amendment  gives  the  cities 
in  that  iState  the  right  to  adopt  the  commission  plan  if  so  desired. 

New  Orleans  also  adopted  the  plan  in  a  special  election  in  September 
by  a  vote  of  more  than  ten  to  one. 

A  showing  that  surprises  many  of  the  inquirers  is  the  large  number 
and  varied  character  of  the  towns  and  cities  that  have  adopted  the  plan. 


130  City  Building. 


In  a  list  of  about  125  cities  and  towns,  governed  by  commissions,  Alabama 
leads  with  the  substantial  cities  of  Birmingham,  with  a  population  of 
132,685,  and  Montgomery,  38,136. 

Kansas  leads  with  the  largest  number  of  towns  and  cities  under  the 
plan — the  total  being  2  3.  The  largest  of  these  is  Kansas  City,  with  a 
population  of  84,331;   Wichita,  52,460,  and  Topeka,  42,692. 

Iowa  has  eight  cities:  Des  Moines,  Burlington,  Cedar  Rapids,  Daven- 
port, Fort  Dodge,  Keokuk,  Marshal-town,  anl  Sioux  City.  The  population 
of  these  cities  range  from  14,000  to  86,000. 

Sixteen  Illinois  towns  are  governed  by  commissions,  the  largest  being 
Springfield,  with  a  population  of  51,678;  Rock  Island,  24,335;  Moline, 
24,109;  Decatur,  31,140;  and  Jacksonville,  15,326. 

California  has  eight  commission  plan  cities,  the  three  largest  being 
Oakland,  with  150,174;   Berkeley,  40,434;   and  San  Diego,  39,578. 

Texas  has  thirteen  cities  and  four  towns  governed  by  the  commission 
plan.  These  include  Dallas,  92,104;  Houston,  78,800;  Fort  Worth,  73,- 
313;  Galveston,  36,981;  and  Austin  and  Beaumont,  having  more  than 
20,000  population. 

Spokane  and  Tacoma,  thriving  Washington  cities,  have  the  commis- 
sion.    Spokane  has  a  population  of  104,402  and  Tacoma  has  83,743. 

In  West  Virginia,  Huntington,  31,161;  Parkersburg,  17,943,  and 
Bluefield,  11,188.  In  Kentucky,  Lexington,  35,099,  and  Newport,  30,309. 
In  Michigan,  Port  Huron,  18,863,  and  three  other  cities.  In  Massachusetts, 
Gloucester,  Haverhill,  Lynn,  and  Taunton,  from  24,000  to  89,000.  In  South 
Dakota,  Sioux  Falls,  14,094;  Aberdeen,  10,753,  and  eight  other  towns.  In 
Wisconsin,  Eau  Claire,  18,310,  and  Appleton,  16,773;  and  in  dozens  of 
other  cities  the  plan  is  in  successful  operation. 

Salt  Lake  City,  Utah,  capital  of  the  State  and  of  Mormonism;  Co- 
lumbia, capital  of  South  Carolina;  Sumter,  South  Carolina;  Memphis  and 
Chattanooga,  Term.,  are  in  the  list. 

In  other  States  records  show  Idaho,  one  city;  Colorado,  two;  Louis- 
iana, two;  Maryland,  New  Mexico,  Oregon,  one  each;  Minnesota,  Missis- 
sippi, two  each;  North  Carolina  and  North  Dakota,  three  each  under  the 
rule  of  the  plan. 

Buffalo  has  adopted  the  Commission  plan.  A  number  of  other  cities 
have  voted  to  adopt  the  plan  in  some  form,  but  have  not  placed  it  in 
operation. 

The  present  status  of  the  plan  shows  a  wide  variance  in  the  form  in 
which  it  is  adopted  in  various  States  and  cities.  The  reason  for  this 
wide  difference  is  apparently  to  meet  local  conditions.  Some  of  the  States 
have  constitutions  which  impose  certain  unalterable  conditions  upon  the 
cities  of  the  State  to  be  fulfilled.  In  such  instances  the  commission  form 
is  changed  to  meet  those  conditions.  In  other  places  individuality  of  sen- 
timent has  caused  other  differences  to  creep  into  the  commission  charter. 


Government  by  Commission.  131 


II 
What  is  Government  by  Commission? 


The  commission  form  of  municipal  government  substitutes  for  the 
mayor  and  board  of  aldermen  a  commission  of  five  men,  elected  by  the 
people  just  as  they  would  elect  assemblymen  or  aldermen.  Each  of  these 
five  takes  special  supervision,  such  as  the  police,  the  fire  department,  or 
water  supply.  There  is  no  magic  in  the  number  five,  any  community  which 
wants  a  commission  of  fifteen  or  of  three  can  have  it. 

The  mayor  is  one  of  the  board  and  has  very  little  authority.  Virtu- 
ally, he  is  simply  the  chairman  of  the  commission,  with  not  much  more 
privilege  than  the  right  to  call  them  to  order. 

The  commission  form  of  government,  as  usually  understood,  may  be 
illustrated  with  the  system  adopted  in  Des  Moines,  Iowa. 

The  general  plan  is  that  the  citizens  by  primary  may  nominate  can- 
didates for  mayor  and  four  commissioners,  who  shall  have  complete  charge 
of  town  business,  legislative,  executive  and  judicial.  Any  person  can  be 
nominated  by  a  petition  of  25  citizens.  The  10  candidates  having  the 
highest  vote  at  the  primary  two  weeks  later  are  submitted  to  the  citizens 
for  an  election,  and  the  five  candidates  having  the  highest  votes  at  this 
election  comprise  the  city  council,  with  full  powers — legislative,  executive 
and  judicial.  They  manage  the  business  as  completely  as  the  board  of 
directors  could  manage  the  business  of  a  bank. 

There  are  five  departments,  as  follows:  First,  a  department  of  pub- 
lic affairs;  second,  a  department  cf  accounts  and  finance;  third,  a  depart- 
ment of  public  safety;  fourth,  a  department  of  streets;  and  fifth,  a  de- 
partment of  parks  and  public  property. 

The  mayor,  by  virtue  of  his  office,  has  charge  of  the  department  of 
public  affairs,  with  general  supervision  over  the  other  departments,  and 
receives  a  salary  of  $3,500.  The  other  commissioners  receive  a  salary  of 
$3,000.  The  council,  by  majority  vote,  appoints  all  other  officials  of  the 
town — city  clerk,  solicitor,  tax  assessor,  police  judge,  treasurer,  auditor, 
civil  engineer,  city  physician,  marshal,  chief  of  fire  department,  street 
commissioner,  library  trustees,  and  all  other  necessary  officers.  These 
selections  are  made  under  a  board  of  civil  service  commissioners.  Each 
commisioner  appoints  the  subordinate  employees  in  his  own  department 
and  each  commissioner  is  held  responsible  for  the  successful  management 
of  his  department. 

Extreme  pains  are  taken  to  prevent  fraud  in  the  elections.  For  in- 
stance, the  fullest  publicity  is  required  of  campaign  funds.  Both  the 
source  and  the  manner  of  expenditures  are  required  to  be  reported  under 
oath.  No  officer  or  employee  is  permitted  to  be  interested,  directly  or 
indirectly,  in  any  contract  with  the  city  or  in  any  public  service  corpora- 
tion, or  to  accept  any  free  service  therefrom. 

All  franchises  or  right  to  use  the  streets,  highways,  or  public  places 
of  the  city  can  be  granted,  renewed  or  extended  only  by  ordinance,  and 
every  franchise  or  grant  for  interurban  or  street  railways,  gas  or  water 
works,  electric  light  or  power  plants,  heating  plants,  telegraph  or  tele- 


132  City  Building. 


phone  systems,  or  public  service  utilities,  must  be  authorized  or  approved 
by  a  majority  of  the  electors  voting  thereon  at  a  general  or  special 
election. 

Every  motion,  resolution  and  ordinance  of  the  council  must  be  in 
writing,  and  the  vote  of  every  member  of  the  council,  for  and  against  it, 
must  be  recorded.  The  council  is  required  to  print  and  effectively  dis- 
tribute each  month,  in  pamphlet  form,  a  detailed,  itemized  statement  of 
all  receipts  and  expenses  and  a  summary  of  its  proceedings  during  the 
preceding  month.  At  the  end  of  each  year  the  council  must  cause  a  full 
and  complete  examination  of  all  the  books  and  accounts  of  the  city  to  ba 
made  by  competent  accountants  and  publish  the  report  in  pamphlet  form. 

Every  ordinance  or  resolution  appropriating  money  or  ordering  any 
street  improvements  or  sewers,  or  making  or  authorizing  any  contract,  cr 
granting  any  franchise,  must  be  complete  in  its  final  form  and  remain  on 
file  with  the  city  clerk  for  public  inspection  at  least  one  week  before  its 
final  passage  or  adoption. 

Nothing  is  permitted  to  be  done  in  secrecy  or  in  the  dark.  The  pub- 
lic business  is  public. 

Ward  lines  are  abolished  in  the  choice  of  city  commissioners,  so  that 
each  citizen  votes  for  every  commissioner  both  in  nominating  and  electing 
him.  Partisanship  is  eliminated.  No  party  emblems  are  permitted  on 
the  ticket,  but  the  candidates  are  listed  in  serial  order,  without  party  des- 
ignation, and  are  nominated  and  elected  as  far  as  possible  on  the  ground 
of  personal  fitness. 

In  Galveston  the  city  government  was  given  into  the  hands  of  five 
men,  three  of  whom  under  the  original  charter  were  appointed  by  the  gov- 
ernor and  two  elected  by  the  people.  By  a  decision  of  the  supreme  court, 
the  appointment  of  all  the  commissioners  was  subsequently  made  elective. 

There  is  a  mayor,  or  general  manager,  and  four  managers  of  partic- 
ular departments.  All  power  resides  in  the  commission.  A  majority  vote 
of  the  body  is  final. 

The  mayor  is  presiding  officer  and  general  manager  of  the  affairs  of 
the  city,  but  he  has  no  power  beyond  his  vote  as  commissioner,  except 
some  minor  abilities  to  act  in  cases  of  emergency.  The  commissioners 
must  also  come  to  the  board  for  all  power  to  act.  The  commission  at  its 
first  meeting  divided  its  departments  among  its  members  by  vote  under 
these  four  heads:  Comissioner  of  finance  and  revenue,  police  and  fire 
commissioner,  commissioner  of  streets  and  public  property,  and  water- 
works and  sewerage  commissioner 

The  plan  does  not  insure  good  government;  no  mere  system  can  do 
that.  The  people  must  be  alert,  interested  in  their  city  and  its  adminis- 
tration and  ready  to  act  if  their  interests  are  not  guarded.  No  scheme 
of  government  can  take  the  place  of  these  qualities  on  the  part  of  citizens. 


Government  by  Commission.  133 


III 
What  Has  It  Accomplished? 


The  commissioners  in  Galveston  prepared  plans  for  raising  the  grade 
of  the  city  and  the  building  of  the  great  sea  wall.  The  city  hall  and  water 
works  station  were  rebuilt  and  the  fire  stations  repaired.  All  floating 
indebtedness  inherited  from  the  old  city  government  was  paid  and  the 
city  placed  on  a  cash  basis.  The  improvements  made  from  September 
18,  1901,  the  date  when  the  commission  was  inaugurated,  up  to  Jan- 
uary 1,  1911,  totaled  $3,832,851.08. 

The  first  worthy  accomplishment  in  Des  Moines  was  the  introduction 
of  modern  business  methods  into  municipal  affairs.  Work  done  by  the 
employes  of  the  city  has  been  well-done  and  contract  work  has  been  held 
strictly  up  to  specifications.  The  streets  and  alleys  have  been  effectively 
cleaned.  A  beautiful  civic  center  was  established.  The  city's  relations 
with  its  public  utilities  were  improved.  The  city  for  the  first  time  in 
years  lived  within  its  income. 

The  commission  plan  has  accomplished  in  Des  Moines  something  like 
the  following:  Directness,  simplicity  and  therefore  efficiency  and  economy 
in  administration;  a  very  much  greater  responsiveness  of  the  city  gov- 
ernment to  public  opinion,  in  other  words,  a  more  thoroughly  democratic 
city  government;  a  very  much  greater  civic  interest  and  civic  pride;  a 
great  stimulation  of  the  public  to  the  undertaking  of  general  public  im- 
provements; the  general  unification  of  the  city,  making  out  of  seven  con- 
tending wards  one  unified  city;  a  general  clearing  up  of  the  city  politic- 
ally, morally  and  physically.  ~-_ 

The  plan  in  Grand  Junction,  Colorado,  has  encouraged  extensions 
by  all  the  public  service  corporations  because  the  city  does  business  in  a 
more  business-like  way.  The  street  railway,  gas,  electric  light  and  tele- 
phone companies  at  once  improved  and  extended  their  equipment.  The 
commissioners  'have  given  the  city  better  drinking  water,  cleaner  streets 
and  better  parks.  The  police  force  has  been  improved.  The  annual  cost 
of  maintaining  the  commission  government  is  less  than  the  cost  of  the 
former  government. 

In  Austin,  Texas,  the  commissioners  in  two  years  paid  off  overdrafts 
amounting  to  $31,529,  redeemed  $29,000  of  its  bonds,  reduced  the  tax 
rate  twenty-four  cents  on  the  hundred  dollars,  and  at  the  end  of  the  year 
had  on  hand  a  surplus  of  $93,432. 

In  Berkeley,  Cal.,  the  municipal  courts  were  improved,  the  health 
department  reorganized,  the  city's  water  and  light  supply  has  been  im- 
proved upon,  the  police  and  fire  departments  have  been  made  more 
efficient. 

In  Kansas  City,  Kansas,  the  cost  of  public  work  was  reduced,  brick 
paving  that  had  cost  $1.70  per  yard  was  done  for  $1.50,  asphalt  paving 
was  reduced  from  $2.10  to  $1.85.  The  park  and  boulevard  system  has 
been  extended,  playgrounds  have  been  installed  and  utilities  have  been 
improved  and  extended. 

Houston  has  made  great  strides  in  public  improvements  and  yet 
reduced  the  tax  rate  thirty  cents  on  the  dollar.     In  Iola,  Kansas,   the 


134  City  Building. 


commission  in  its  first  year  increased  government  efficiency,  increased 
street  expenditures  by  lopping  off  the  old  inefficient  methods,  and  yet 
ran  the  government  for  $32,741  less  than  the  old  system  had  ever  run 
it  under.  In  Dallas,  Texas,  the  commissioners  in  two  years  wiped  out  a 
deficit  of  $200,000  and  placed  a  balance  in  the  treasury.  In  Sioux  Palls, 
Iowa,  city  expenses  were  decreased  through  the  consolidation  of  offices, 
there  was  a  definite  increase  in  efficiency  in  every  department  of  the  city, 
and  public  improvements  were  stimulated  and  conducted  on  business  lines 
and  with  a  coherent  plan.  Leavenworth,  Kansas,  has  paved  more  streets 
since  it  adopted  the  commission  plan  than  it  paved  in  all  its  history  before. 

Columbia,  South  Carolina,  has  civil  service  for  police,  fire  and  health 
departments;  initiative,  recall  and  referendum.  Ward  lines  are  obliter- 
ated, councilmen  being  elected,  as  the  mayor,  at  large. 

In  the  old  system  there  was  little  or  no  grafting,  just  incompetence 
or  indifference,  lack  of  definite  responsibility;  this  unbusiness-like  system 
resulted  in  waste,  a  thousand  little  leaks.  There  were  jealousies  anl 
bickerings  among  aldermen. 

All  that  is  changed.  In  ten  months  for  the  first  time  in  many  years 
the  city  wiped  out  a  floating  debt  of  $75,000  and  got  on  a  cash  basis. 
No  debts.  No  appropriations  overdrawn.  Every  councilman  publicly 
known  to  be  responsible  for  the  conduct  of  a  certain  department.  The 
waterworks  instead  of  shewing  a  deficit  of  $18,000,  to  be  paid  out  of  gen- 
eral taxes,  is  paying  expenses  and  beginning  to  show  a  cash  balance. 

Besides  $25,000  for  street  cleaning  and  repairs,  $100,000  was  ap- 
propriated for  expenditure  in  1912  for  permanent  improvements — all  out 
of  current  receipts.  Next  year  the  city  will  appropriate  $115,000  for  such 
improvements. 

In  Trenton,  New  Jersey,  open  competitive  bidding  has  been  adopted 
for  contract  work;  city  advertising  has  been  placed  on  a  business  basis 
at  a  saving  of  several  thousand  dollars  annually;  a  legal  department  has 
been  established;  a  city  chemist  has  been  included  in  the  personnel  of 
officials;  theaters  and  moving  picture  houses  are  kept  under  strict  surveil- 
lance; all  city  bills  are  paid  promptly;  city  business  is  transacted  more 
quickly  than  ever  before  and  all  employes  put  in  more  time  at  their  work 
than  ever  before. 

In  one  year  in  Montgomery  the  commission  completed  street  im- 
provements valued  at  $129,058.33  and  sewerage  improvements  valued  at 
$73,248.  A  supplemental  water  power  plant  to  deliver  water  for  com- 
mercial purposes  was  also  completed. 

The  police  and  fire  departments  are  the  pride  of  citizens.  The  police 
department  embraces  75  men  and  is  equipped  with  patrol  wagons,  bicy- 
cles and  an  alarm  system.  The  fire  department  is  equipped  with  modern 
apparatus  and  is  being  gradually  changed  from  horse  trucks  to  motor 
trucks. 

In  Memphis,  Tennessee,  the  commission  reduced  the  city  tax  rate 
from  $1.76  to  $1.59,  the  latter  being  the  lowest  in  the  history  of  the  city; 
secured  the  construction  of  $5,000,000  of  subways,  now  being  built,  some- 
thing previous  administrations  tried  in  vain  for  twenty  years  to  do;  con- 
structed 60  miles  of  permanent  street  paving,  38  miles  of  sewer,  and  100 
miles  of  five-foot  sidewalks. 

In  Yankton,  South  Dakota,  the  commission  has  built  a  large  amount 
of  cement  sidewalks  and  has  made  considerable  extensions  to  the  water- 
works and  sewer  systems,  also  an  ornamental  concrete  bridge.  During 
the  same  period  the  city's  indebtedness  has  been  reduced  several  thousand 
dollars,  and  the  tax  rate  has  been  slightly  reduced. 


Government  by  Commission.  135 


IV 
The  First  Steps  to  Secure  It 


The  creation  of  a  desire  on  the  part  of  the  majority  of  the  citizenship 
of  a  community  for  the  so-called  Commission  Form  of  Government  is  the 
first  step  in  the  campaign  to  secure  it  for  any  community.  An  educational 
campaign  must  of  necessity  he  prosecuted  to  teach  the  people  the  differ- 
ence between  the  new  form  and  the  old  way  and  to  show  that  the  new 
plan  brings  out  the  best  qualities  in  the  men  who  hold  municipal  posi- 
tions because  it  throws  all  of  their  actions  into  the  lime  light  of  public 
scrutiny. 

The  logical  place  for  the  campaign  for  the  adoption  of  the  plan  to 
originate  is  in  the  city's  commercial  organization.  It  is  in  this  associa- 
tion of  individuals  that  there  is  gathered  together  the  various  interests 
of  the  city  for  the  avowed  purpose  of  doing  any  and  all  things  necessary 
and  incident  to  the  betterment  of  all  phases  of  the  city's  life  and  activity. 

With  the  commercial  organization  solidly  behind  the  movement  for 
better  municipal  gveornment  the  campaign  is  well  on  its  way  to  a  suc- 
cessful termination  For  the  sake  of  example,  we  will  suppose  that  a 
commercial  organization  is  considering  such  a  campaign. 

The  first  thing  that  body  of  citizens  wishes  to  know  is  what  is  the 
plan,  and  is  it  a  success  or  simply  a  bubble  of  new-fangled  notions  of  mu- 
nicipal government.  A  special  committee  composed  of  lawyers  and  busU 
ness  men  is  appointed  to  investigate  such  questions.  The  committee  con- 
ducts a  bureau  of  research,  asking  the  officials  and  the  citizens  in  various 
businesses  and  professions  in  the  cities  which  are  governed  by  the  plan 
in  its  numerous  forms  for  their  unbiased  and  impartial  verdict  as  to  the 
success  of  the  plan,  its  shortcomings  and  what  definite  results  it  has 
accomplished. 

Other  sources  of  information  on  these  and  similar  questions  can  be 
secured  from  the  American  Academy  of  Social  and  Political  Science,  the 
United  States  Government,  the  schools  of  political  science  in  the  various 
universities  and  the  several  municipal  journals  and  periodicals. 

The  investigating  committee  can  readily  compile  sufficient  data  from 
the  voluminous  records  secured  from  the  above  sources  to  make  an  ex- 
haustive report  on  the  subject  of  whether  or  not  commission  government 
is  good  or  bad  for  a  city.  Such  a  report  will  be  found  of  great  value 
later  in  the  event  it  is  decided  to  secure  the  adoption  of  the  plan.  Such 
a  brief  on  the  subject  can  be  made  an  exceedingly  valuable  campaign 
text-book  or  hand-book.  In  it  can  be  found  answers  to  most  any  argument 
against  the  plan. 

This  committee  should  also  be  empowered  to  investigate  the  steps 
which  will  be  necessary  in  order  to  make  the  requisite  change  in  the 
city's  charter.  In  practically  every  State,  if  not  in  every  one,  any  changes 
in  the  charters  of  cities  within  the  boundaries  of  the  State  can  be  made 
only  by  a  special  act  of  the  legislature  of  that  State. 

In  other  words,  an  enabling  act  must  be  passed  by  the  legislature 
granting  the  right  to  cities  to  amend  their  charter  in  certain  ways.     The 


136  City  Building. 


State  Constitution   generally  prescribes  the  method  necessary  to  be  pur7 
sued  in  order  to  effect  such  a  change. 

Some  State  Constitutions  grant  the  right  of  home  rule  to  their 
cities.  A  notable  example  of  such  a  constitution  is  the  one  adopted  by 
the  pepole  of  Ohio  in  a  special  election  held  on  September  3rd,  1912. 
Under  this  particular  amendment  in  the  Ohio  Constitution  all  cities  with- 
in that  State  may  adopt  the  commission  form  of  government,  if  they  so 
desire.  This  is,  perhaps,  the  greatest  victory  for  this  plan  which  has  yet 
been  achieved  since  the  birth  of  the  plan  in  Galveston  some  ten  or  eleven 
years  ago.  In  the  State  of  Colorado  also,  the  cities  have  the  right  of 
homo  rule. 

In  a  number  of  the  States,  however,  the  constitution  is  so  framed 
as  to  place  certain  cities  in  certain  classes.  These  classes  are  determined 
wholly  by  size  or  population,  and  physical  or  other  differences  are  not 
taken  into  consideration,  as,  for  example,  in  one  State  there  are  several 
second  class  cities,  one  of  which  is  an  inland  city,  while  the  others  are 
river  points,  and  yet  in  the  charter  of  the  inland  place  there  are  great 
long  clauses  concerning  the  question  of  public  wharves. 

Under  such  a  constitution  it  is  more  difficult  to  secure  the  Com- 
mission Plan  than  where  the  cities  are  not  put  into  classes.  The  reason 
is  apparent.  In  such  a  case,  instead  of  having  to  educate  the  people  of 
only  one  community,  it  is  necessary  to  create  the  desire  for  the  change 
in  the  charter  in  all  of  the  cities  of  the  same  class. 

All  of  the  various  steps  through  which  the  campaign  has  to  be  car- 
ried must  be  worked  out  by  this  special  investigating  committee.  Then 
with  the  co-operation  of  the  newspapers,  with  the  help  of  mass  meetings 
of  citizens,  with  the  assistance  of  imported  speakers  who  are  authorities 
on  various  phases  of  the  plan,  with  the  aid  of  printed  matter,  pamphlets, 
letters  and  other  publicity  and  with  the  active  co-operation  of  as  large  a 
citizens'  committee  to  talk  the  advantage  of  the  plan  in  their  daily  inter- 
course between  man  and  man,  a  campaign  can  be  promited  which  will 
successfully  carry  the  movement  through  the  legislature,  if  necessary,  in 
the  form  of  the  enabling  act,  and  through  the  referendum  vote  of  the 
people  afterwards  when  they  vote  on  the  question  whether  or  not  the  city 
shall  be  governed  under  the  provisions  of  the  charter  amendment  provid- 
ing for  the  commission  form. 


Government  by  Commission.  137 


V 

The  Essentials  of  the  Charter 


In  the  commission  plan,  generally  regarded  as  the  pure  form,  there 
are  ten  essentials,  every  one  of  which  are  considered  vital  by  the  most 
authoritative  students  of  the  plan.     These  esesntials  are  named  as  follows: 

(1)  Instead  of  having  a  Board  of  Councilmen  and  Aldermen  to  pass 
ordinances  subject  to  the  approval  of  a  Mayor  or  themselves  only,  there 
is  a  commission  of  five  persons  to  pass  ordinances,  subject  to  the  approval 
of  the  voters  of  the  city,  with  no  veto  power  in  the  Mayor. 

(2)  Non-partisan  primary  at  the  expense  of  the  city  to  select  nom- 
inees, thus  encouraging  good  men  to  become  candidates  and  taking  away 
from  the  political  bosses  the  privilege  of  saying  who  shall  be  the  nominees. 

(3)  Non-partisan  ballot,  on  which  all  nominees  are  placed,  without 
any  party  emblem,  thus  practically  providing  for  special  investigation  as 
to  the  best  men  to  vote  for. 

(4)  The  Recall  of  the  Mayor  or  any  Commissioner  in  case  of  mis- 
conduct, inability  or  neglect  in  the  performance  of  his  duties,  for  which 
any  of  them  may  be  removed  from  office  by  the  majority  vote  of  the  citi- 
zens. If  the  Mayor  or  any  Commissioner  be  removed  from  office,  the 
reason  for  such  removal  shall  be  stated  in  writing  and  snail  be  filed  as  a 
public  record.  Any  voter  can  circulate  a  petition  at  any  time  calling  for 
a  special  election  for  the  recall  of  any  commissioner.  A  certain  percentage 
of  votes  cast  at  the  last  general  election  must  be  represented  by  the  sign- 
ers of  this  petition  before  the  special  election  for  the  recall  of  any  Com- 
missioner can  be  called. 

(5)  Provision  for  Referendum,  under  which  25  per  cent  of  the 
voters  may  protest  against  the  adoption  of  any  ordinance,  and  if  the  same 
ia  not  then  repealed  by  the  Commission,  it  may  be  voted  on  by  the  people 
at  large  as  to  whether  or  not  it  shall  go  into  effect. 

(6)  Provision  for  Initiative  under  which  any  ordinance  that  the 
Commission  may  legally  pass  may  be  adopted  by  vote  of  the  people  at 
large,  if  the  Commission  refuses  to  pass  it  after  receiving  a  petition  from 
25  per  cent  of  the  voters  requesting  them  to  do  so. 

(7)  Each  Commissioner  is  to  be  a  superintendent  of  a  department  of 
the  city,  but  he  has  no  knowledge  before  the  election  to  which  department 
he  may  be  assigned;  therefore  he  cannot  promise  with  any  certainty  any 
positions  on  the  police  or  fire  departments  or  otherwise,  thus  preventing 
employes  of  the  various  departments  favoring  any  particular  candidate. 

(8)  Civil  service  governing  policemen  and  firemen  and  other  city 
employes. 

(9)  The  duties  and  salaries  of  employers  shall  be  fixed  by  ordinance, 
thus  permitting  the  people  to  vote  on  them  if  they  consider  them  im- 
proper. 

(10)  Every  ordinance  involving  the  expenditure  of  more  than 
$1,000  or  granting  any  franchise  or  right  to  use  or  occupy  the  streets, 
shall,  after  its  introduction  and  before  its  adoption,   remain  on  file  at 


138  City  Building. 


least  one  week  in  the  complete  form  in  which  it  shall  be  put  on  its  passage, 
thus  preventing  dangerous  and  pernicious  amendments  just  before  it  is 
voted  on,  and  no  such  ordinance  can  go  into  effect  until  ten  days  after  its 
passage,  except  in  case  of  emergency  the  public  health  or  safety  shall  re- 
quire that  it  take  immediate  effect,  which  fact  shall  be  declared  by  the 
unanimous  vote  of  the  Board  of  Commissioners. 

A  modification  of  the  above  plan  has  made  its  appearance  in  some 
sections  of  the  country,  which  is  considered  the  height  of  radicalism  by 
some  authorities  and  the  acme  of  perfection  in  business  management  of 
municipal  affairs  by  others.  It  is,  in  short,  the  advent  of  the  professional 
mayor,  a  municipal  expert  trained  in  the  office  of  general  manager  of  the 
municipal  corporation.  This  modification  is  an  approach  toward  the  Eu- 
ropean custom  of  cities  which  have  their  expert  in  city  affairs.  This  man 
is  not  elected  by  the  people  directly,  but  appointed  to  service  by  the  town 
council.  His  tenure  of  office  is  permanent,  dependent  solely  upon  effi- 
ciency. 

The  friends  of  this  modification  claim  that  the  matter  of  governing 
a  city  is  simply  a  business  proposition  and  that  its  solution  lies  in  the  ap- 
plication of  business  principles.  They  point  to  the  great  railroads  and 
business  organizations  and  call  attention  to  the  men  in  authority,  the 
president  or  general  manager,  who  are  employed  by  the  board  of  di- 
rectors to  carry  out  the  business  policy  which  that  board  has  outlined. 
They  claim  that  this  board  of  directors  is  elected  by  the  stockholders  of 
the  corporation  and  that  the  board  is  always  in  a  position  to  command 
and  check  the  movements  of  their  president  or  general  manager. 

The  principle  as  applied  to  the  municipal  corporation  is  as  follows: 
The  voters  are  considered  as  stockholders.  They  meet  at  the  regular  elec- 
tion times  and  elect  a  board  of  commissioners.  These  commissioners  meet 
and  receive  applications  for  the  position  of  general  manager  of  the  city. 
The  selection  of  this  individual  is  based  upon  his  ability  to  handle  the 
work.  He  is  elected  by  a  majority  vote  of  the  commissioners  and  is  placed 
in  charge  of  the  business  of  governing  the  city.  He  is  made  responsible 
for  his  acts  of  commission  as  well  as  those  of  omission. 

The  commission  appoints  his  assistants,  such  as  the  city  auditor, 
clerk,  assessor,  treasurer,  engineer,  and  so  forth.  This  general  manager 
makes  his  reports  to  the  board  of  commissioners,  who  in  turn  make  them 
public. 

If  the  general  manager  fails  in  ability  in  the  discharge  of  his  duties 
he  is  asked  to  resign  and  a  new  man  placed  in  charge  in  his  stead. 

Sumpter,  S.  C,  has  this  plan  in  force  with  some  few  differences 
Some  of  the  cities  of  Virginia  have  adopted  plans  which  in  a  measure  ap 
proach  this  form. 


Government  by  Commission.  139 

VI 
How  to  Secure  it  for  Your  City 


The  first  step  in  a  campaign  to  secure  the  adoption  of  the  Commis- 
sion Form  of  Government  plan  for  a  municipality  is  the  organization  of 
a  Charter  Committee.  This  committee  should  be  composed  of  the  best 
men  in  the  community.  It.  should  be  large  enough  to  embrace  represent- 
atives of  all  of  the  various  business  and  professional  interests  of  the  city. 
It  should  have  bankers,  business  men,  lawyers,  doctors  and  educators 
among  its  members. 

The  first  duty  of  this  committee  should  be  to  make  a  thorough  in- 
vestigation of  the  plan  and  its  various  modifications  as  adopted  by  other 
cities  and  the  success  of  those  plans  wherever  adopted.  A  study  of  con- 
ditions in  these  other  cities  and  a  comparison  of  these  conditions  with 
those  which  prevail  in  the  home  town  should  be  made,  and  the  proposed 
charter,  which  is  the  final  report  of  this  committee,  should  be  made  up 
with  reference  to  the  result  of  that  comparison. 

It  will  be  necessary  for  this  Charter  Committee  to  study  the  consti- 
tution in  order  to  ascertain  the  limitations  which  the  State  Constitution 
places  upon  amendments  which  may  be  made  to  the  city  charter.  Care- 
ful attention  to  this  phase  of  the  committee's  work  will  probably  save 
the  charter  when  tested  by  its  enemies  in  the  Supreme  Court  on  the  ques- 
tion of  its  constitutionality.  Every  effort  should  be  made  by  the  Charter 
Committee  to  protect  this  phase  of  its  work. 

After  the  Charter  Committee  has  made  its  final  report,  the  next  step 
in  the  campaign  is  the  appointment  of  a  Steering  or  Legislative  Commit- 
tee to  have  charge  of  the  charter  amendment,  to  prepare  it  in  the  form 
of  a  bill,  to  have  it  introduced  in  the  next  session  of  the  legislature,  and 
to  continually  watch  its  course  through  that  body  in  order  to  secure  its 
passage  into  a  law.  Certain  members  of  the  Charter  Committee  should 
also  be  members  of  the  Legislative  Committee.  The  Legislative  iCommir- 
tee,  like  the  Charter  Committee,  should  be  composed  of  the  most  repre- 
sentative men  in  the  community.  Attention  should  be  paid  to  the  influ- 
ence which  the  members  of  that,  committee  will  be  able  to  exert  upon 
the  members  of  the  legislature. 

In  many  States  the  constitution  provides  that  the  cities  of  a  certain 
population  are  to  be  considered  as  cities  of  a  certain  class  and  one  gen- 
eral charter  is  adopted  for  the  government  of  all  cities  of  the  same  class. 
In  States  where  this  is  true  a  campaign  is  often  necessary  to  secure  the 
support  of  the  best  elements  in  the  other  cities  of  the  same  class  in  order 
to  secure  the  votes  of  the  senators  and  representatives  from  those  legis- 
lative districts.  Strong  support  for  the  passage  of  such  an  amendment 
can  often  be  secured  in  the  other  cities  of  the  same  class  by  calling  atten- 
tion to  the  fact  that  after  the  law  is  passed  by  the  legislature  it  must  then 
be  adopted  by  the  citizens  of  each  city  separately  and  the  question  of  one 
city  is  not  binding  upon  any  other  city  of  the  same  class  either  in  adop- 
tion or  rejection  of  the  proposed  amendment. 


140  City  Building. 


When  the  bill  has  been  made  a  law  by  the  legislature  the  real  work 
for  the  adoption  of  the  plan  by  the  city  begins.  A  more  or  less  strong 
educational  campaign  has  already  been  conducted  even  before  the  appoint- 
ment of  the  Charter  Committee.  After  the  bill  has  passed  through  the 
legislature  then  this  educational  campaign  must  be  entered  upon  with 
greatly  increased  force  and  vigor. 

In  the  conduction  of  the  educational  campaign  the  central  idea  should 
be  to  thoroughly  explain  the  provisions  of  the  commission  plan  as  far  as 
possible  to  every  voter  in  the  city.  This  can  be  done  by  the  use  of  news- 
papers, the  circulation  of  explanatory  pamphlets  and  through  the  medium 
of  mass  meetings  of  citizens  at  which  lectures  by  authorities  upon  the 
subject  are  given.  Precinct  meetings  for  two  or  three  weeks  before  elec- 
tion day  have  been  found  to  be  of  great  benefit  in  reaching  a  class  of 
Voters  which  will  not  be  attracted  to  the  general  mass  meetings,  or  which 
will  not  read  either  the  pamphlets  or  the  newspapers.  ' 

Throughout  the  campaign  the  strongest  appeal  should  be  made  to 
the  civic  pride  of  the  citizens  of  the  city.  Comparisons  should  be  made 
between  the  inefficiency  of  the  present  system  of  government  in  effect  in 
the  city  and  the  efficiency  of  the  commission  plan  as  adopted  in  other 
cities  where  great  public  improvements  have  been  carried  out,  where 
taxes  have  been  reduced,  and  where  a  consistent  municipal  force  has  been 
secured. 

A  few  days  before  election  day  a  workers'  mass  meeting  should  be 
called,  at  which  every  friend  of  the  commission  plan  should  be  urged  to 
be  present.  At  this  meeting  volunteer  workers  at  the  polls  are  secured. 
These  men  volunteer  to  go  to  the  polls  when  they  open  on  election  morn- 
ing and  stay  throughout  the  entire  day  working  in  the  interest  of  the 
amendment. 

Poll  books  of  all  the  voters  in  the  city  by  precincts  are  prepared  and 
handed  to  these  precinct  workers,  who,  as  the  voters  cast  their  ballots, 
check  them  off.  As  a  voter  appears  at  the  polling  place  some  one  of  the 
workers  approach  him  and  solicit  his  vote  for  the  commission  plan.  If 
necessary,  the  worker  enters  into  an  argument  with  him  to  answer  the 
voter's  conscientious  objections,  if  he  has  any. 

The  efficacy  of  the  plan  for  precinct  workers  at  the  polls  has  been 
shown  in  more  than  one  city.  The  writer  has  in  mind  one  particular  city 
which  secured  the  passage  of  the  commission  plan  bill  in  the  legislature. 
When  the  plan  was  voted  upon  the  first  time  no  organization  at  the  polls 
was  had,  and  resulted  with  the  politicians  beating  the  plan  by  an  over- 
whelming majority.  At  the  next  general  election  a  thoroughly  organized 
company  of  precinct  workers  was  had,  and  in  spite  of  every  effort  of  the 
politicians  to  defeat  the  passage  of  the  amendment,  the  amendment  was 
passed  by  a  vote  of  more  than  two  to  one. 


Good  Roads.  141 


CHAPTER  12. 

GOOD  ROADS 


The  Importance  of  Good  Roads  to  a  Community. 

The  importance  of  good  roads  in  a  community  has  only  become  realized  in 
the  last  few  years.  In  fact,  it  is  claimed  by  many  that  good  roads  have  olnly 
become  appreciated  since  the  advent  of  the  autombile  and  that  the  users  of  the 
motorcar  are  responsible  for  this  agitation  which  is  widespread  throughout  the 
country  in  favor  of  improved  highways. 

Be  this  as  it  may,  there  is  no  question  as  to  the  importance  of  good  roads 
from  a  commercial  or  any  other  viewpoint.  The  remarkable  showing  of  these 
last  few  years  in  all  parts  of  the  nation  in  the  building,  improvement  and  main- 
tenance of  roads  is  prima  facie  evidence  of  the  importance  of  the  subject. 

The  fact  that  the  business  men  in  most  of  the  cities  irrespective  of  states 
are  taking  a  vital  interest  through  their  commercial  organizations  in  bettering 
roads  leading  into  their  cities  is  another  evidence  of  not  only  the  importance 
but  the  real  necessity  of  good  roads  for  the  proper  development  and  progress 
of  both  the  rural  districts  and  the  cities. 

To  have  good  roads  has  become  so  important  a  question  that  nearly  all 
of  the  states  have  passed  constitutional  amendments  allowing  their  counties  to 
vote  bonds  for  the  building  of  roads.  Many  of  the  states  have  voted  state 
bonds  for  this  purpose.  In  Ohio  on  September  3,  1912,  the  people  of  that  state 
voted  on  the  proposition  to  issue  $50,000,000  in  road  bonds. 

Not  a  session  of  congress  is  held  but  what  federal  aid  in  the  form  of  appro- 
priations is  asked  for  the  building  of  good  roads.  Besides  this,  the  United 
States  government  considers  good  roads  so  important  for  the  general  prosperity 
of  the  country  that  the  Department  of  Agriculture  has  established  a  new  sub- 
division called  the  Office  of  Public  Roads  wherein  is  maintained  a  body  of  con- 
sulting engineers.  Under  this  department  experimental  roads  are  being  built, 
materials  for  building  roads  are  being  tested,  also  dust  preventatives.  Different 
kinds  of  road  binders  are  tried  out  and  experimented  with.  This  department 
also  gives  lectures  throughout  the  nation  on  various  phases  of  the  subject  anid 
the  experts  employed  are  constantly  making  research  of  every  feature  of  the 
question,  the  results  of  such  investigations  being  compiled  in  bulletin  form  and 
printed  for  free  distribution  to  those  who  desire  them. 

The  subject  of  good  roads  receives  a  vast  deal  of  attention  from  the  Texas 
Commercial  Secretaries  Association.  A  great  deal  of  energy  is  expended  in 
educating  the  people  of  Texas  to  the  necessity  of  better  roads  with  the  result 
that  nearly  every  county  in  the  state  has  either  passed  a  bond  issue  or  else  are 
preparing  to  submit  the  question  to  a  vote  of  their  cities.  Today  it  is  claimed 
for  Texas  that  the  state  has  more  miles  of  improved  roads  than  any  other  state 
in  the  Union. 

Omaha,  Nebraska,  has  found  that  the  acquirement  of  good  roads  is  so  im- 
portant that  the  Omaha  Commercial  Club  has  in  this  year  of  1912  appointed  a 
Good  Roads  Committee.  The  citizens  of  that  city  say  that  the  possession  of 
good  roads  is  vital  to  the  business  of  the  city  and  that  they  must  co-opejrate 


142  City  Building. 


with  the  smaller  communities  and  inhabitants  of  the  rural  districts  to  the  end 
that  all  roads  throughout  Omaha's  trade  territory  must  be  scientifically  im- 
proved. The  result  of  this  action  and  similar  action  on  the  part  of  other 
Nebraska  cities  has  been  the  addition  of  a  great  impetus  to  the  movement  for 
good  roads  and  already  a  marked  improvement  in  this  primitive  mode  of 
transportation  is  to  be  seen  throughout  the  state. 

In  Calvert,  Texas,  the  question  has  become  so  vital  that  plans  have  been 
prepared  and  are  well  on  their  way  to  a  successful  adoption  to  employ  an  expert 
to  build  fifty  miles  of  shell  roads  in  seven  different  directions. 

In  many  sections  of  the  country  the  roads  in  the  rural  districts  are  paved 
with  brick  and  asphalt.  The  Board  of  Trade  of  Wheeling,  West  Virginia,  re- 
cently successfully  carried  out  a  plan  to  pave  many  miles  of  roads  throughout 
the  county. 

Roads  constitute  the  primitive  mode  of  transportation.  It  is  by  this  method 
that  the  principal  amount  of  interchange  of  goods  and  intercourse  between  city 
and  county  is  today  carried  on  and  this  method  will  continue  in  first  place  for- 
ever, even  with  the  development  with  steam  and  electric  service  to  the  highest 
point  of  efficiency. 

Because  this  is  true,  the  awakening  of  the  nation  is  not  unreasonable.  The 
retailer  has  realized  that  practical  impassability  of  roads  during  the  winter 
months  is  the  cause  of  the  great  falling  off  of  his  sales  during  that  period.  The 
wholesaler  in  turn  has  reached  the  point  where  he  has  analyzed  this  condition 
in  like  manner  and  knows  that  if  the  retailer  clears  his  shelves  of  goods,  he  will 
secure  the  order  to  refill  them.  Also  the  same  doctrine  has  reached  as  far  as  the 
manufacturer. 

In  like  manner  the  condition  of  the  roads  have  an  effect  upon  prices.  Im- 
passable roads  cause  the  price  of  farm  products  to  soar  because  the  demand  is 
beyond  the  immediate  supply.  When  the  roads  become  passable  again  these 
products  are  rushed  to  the  market  in  such  quantities  in  the  effort  to  sell  in  the 
high  market  that  the  supply  far  outstrips  the  demand  and  consequently  prices 
seek  a  low  level.  Both  of  these  conditions  have  a  tendency  to  disturb  the  com- 
mercial equilibrium  of  the  community  and  do  not  tend  to  make  good  business. 

With  improved  roads  such  conditions  are  minimized,  for  in  nearly  any  sort 
of  weather  the  farmer  can  reach  the  city  without  great  inconvenience.  He  can 
haul  more  either  in  or  out  of  the  market,  therefore,  his  transportation  cost  is 
lessened.  With  improved  roads,  the  business  channels  are  kept  more  nearly 
filled  with  commerce  throughout  all  seasons  of  the  year  than  where  the  roads 
are  not  improved. 


Good  Roads.  143 


II 
An  Educational  Campaign  for  Better  Roads 


The  value  of  an  educational  campaign  for  better  roads  is  to  instruct  the 
people  of  the  community  where  such  a  campaign  is  conducted  in  the  impor- 
tance of  good  roads  in  that  particular  section.  No  matter  how  large  or  how 
small  a  city  may  be,  the  subject  of  good  roads  should  appeal  to  the  business 
•interests  of  all  alike  if  from  no  other  reason  than  the  purely  selfish  one  of 
increase  in  business  which  invariably  follows  the  advent  of  improved  roads  in 
the  rural  districts. 

The  use  of  the  stereopticon  and  moving  picture  camera  can  be  made  to  have 
tremendous  weight  in  such  an  educational  campaign.  Not  only  can  such  an 
outfit  be  made  effective  in  local  meetings  but  also  where  meetings  are  held  in 
nearby  counties  or  in  country  school  houses  in  the  rural  districts.  If  a  line 
could  be  drawn,  it  would  perhaps  place  the  latter  use  of  pictures  on  the  side  of 
greater  effectiveness. 

In  using  the  stereopticon,  pictures  showing  conditions  of  well  known  high- 
ways before  improvement  and  after  the  road  has  been  rebuilt  will  have  a  great 
effect.  Other  pictures  attractively  demonstrating  the  hauling  power  of  a  horse 
over  good  roads  in  comparison  to  bad  roads  are  very  good.  Pictures  of  various 
methods  in  use  for  improving  roads  will  give  the  beholder  a  clear  knowledge  of 
this  phase  of  the  subject  and  will  show  him  that  the  work  of  improving  roads 
is  not  the  bug-a-boo  he  thinks  it  is  but  is  really  a  simple  process  or  application 
of  simple  principles.  A  splendid  series  of  pictures,  or  subject  of  a  moving  pic- 
ture film,  would  be  the  demonstration  of  one  or  more  actual  processes  of  road 
building  in  its  entirety.  The  simpler  this  method  the  better  the  effect  on  the 
beholder. 

By  the  use  of  pictures  the  actual  work  in  other  communities  can  be  port- 
trayed  in  a  most  convincing  manner.  Pictures  produce  an  unanswerable  argu- 
ment and  are  not  only  valuable  for  the  prosecution  of  an  educational  campaign 
for  good  roads  but  are  equally  valuable  in  any  other  public  movement  for  the 
public  good.  Requests  for  photographs  of  road  improvement  operations  will 
find  a  ready  response  from  the  communities  upon  whom  the  request  is  made, 
for  they  treat  such  requests  as  another  opportunity  to  give  their  cities  a  little 
valuable  publicity. 

The  holding  of  meetings  not  only  in  the  home  city  but  in  the  outlying  dis- 
tricts will  be  found  to  be  of  great  benefit  in  stimulating  interest  in  better  roads. 
A  thorough  preparation  of  a  program  for  such  meetings  is  necessary  for  success 
in  this  kind  of  a  campaign.  Speakers  should  be  of  the  highest  order  and  well 
informed  upon  the  phases  of  the  subject  which  they  discuss.  Experts  in  con- 
struction can  be  secured  who  will  tell  just  how  the  roads  should  be  improved. 
These  men  will  also  be  able  to  furnish  an  estimate  of  probable  cost  of  the  dif- 
ferent methods  of  construction.  Other  men  can  tell  of  the  successful  efforts  of 
other  communities  in  road  building  and  can  give  figures  to  show  the  actual 
saving  to  these  communities  as  a  result  of  the  building  of  such  roads.  Ltacal 
business  men  of  strong  standing  should  be  secured  to  discuss  the  question  of 
importance  of  good  roads. 


144  City  Building. 


These  meetings  should  be  held  first  in  the  home  city  to  create  the  local  in- 
terest in  the  improvement  of  the  roads  and  then  as  soon  as  sufficient  interest  is 
engendered  to  guarantee  a  substantial  local  following  of  supporters  the  holding 
of  meetings  should  be  held  in  the  school  houses  of  the  home  county,  then  in  the 
nearby  counties  until  finally  the  whole  district  is  covered. 

A  news  bureau  will  be  found  effective  in  this  kind  of  a  campaign.  Through 
this  medium  the  local  newspapers  and  all  other  papers  in  the  district  in  which  it 
is  planned  for  the  campaign  to  cover  are  supplied  with  publicity  matter  on 
various  phases  of  road  building.  The  news  bureau  prepares  a  special  service 
covering  all  phases  of  the  subject  and  supplies  these  articles  to  the  papers  free 
of  cost  and  in  a  manner  ready  for  the  printer. 

The  news  bureau  gathers  all  of  the  data  possible  from  every  source  avail- 
able on  the  subject  of  good  roads  and  prepares  its  articles  for  the  newspapers 
in  as  attractive  a  manner  as  possible.  The  news  bureau  secures  articles  and 
photographs  of  operations  in  other  communities.  In  some  cases  the  news 
bureau  prepares  its  matter  for  publication  in  mat  or  plate  form  which  is  dis- 
tributed free  to  the  newspapers.  Also  special  articles  are  prepared  for  publica- 
tion for  trade  journals  and  special  periodicals  which  will  be  likely  to  use  them. 

The  organization  of  a  state  association  for  good  roads  where  none  now 
exists  will  be  found  of  great  benefit  in  prosecuting  a  campaign  of  education. 
Many  of  the  states  now  have  them. 

The  Texas  Commercial  Secretaries  Association  works  for  good  roads 
through  the  state  newspapers.  Kentucky  has  only  recently  organized  a  State 
Good  Roads  Association  which  is  already  doing  valiant  service  in  showing  the  im- 
portance of  good  highways  to  the  people  of  the  state. 

The  use  of  the  automobile  in  educational  campaigns  has  assumed  a  promi- 
nent position.  Omaha  conducts  many  automobile  excursions  in  the  interest  of 
good. roads.  On  these  excursions,  official  roads  are  established  between  cer- 
tain points,  such  as  the  Omaha  to  Cheyenne,  Omaha  to  Kansas  City,  Omaha 
to  Sioux  City,  Omaha  to  Denver  and  other  roads. 

Jacksonville,  Florida,  conducts  similar  automobile  excursions.  Meetings  in 
outlying  districts  are  held.  In  all  of  this  work  Jacksonville  works  with  the 
state  association. 

The  office  of  Public  Roads  of  the  Department  of  Agriculture  at  Washing- 
ton will  be  found  a  splendid  source  of  information  in  preparing  an  industrial 
campaign.  This  department  can  also  furnish  good  speakers  to  lecture  on  the 
subject  of  highway  improvement. 


Good  Roads.  145 


III 
Where  Good  Roads  are  Found 


It  would  be  impossible  in  an  article  of  this  character  to  tell  where  all  the 
good  roads  are  located.  This  is  not  attempted  but  instead  just  a  few  localities 
which  stand  out  prominently  as  possessors  of  splendid  highways  are  cited. 

The  Blue  Grass  region  of  Kentucky  is  famous  for  the  uniformity  of  im- 
provement and  extent  in  number  of  miles  of  macadamized  roads,  or  "pikes,"  as 
they  are  called  in  that  section.  These  pikes  are  built  of  limestone  in  which  that 
country  abounds.  The  quarried  stone  is  run  through  a  crusher  and  the  crushed 
rock  is  then  spread  on  the  road  bed,  the  larger  rock  first  and  the  smaller 
fcizes  following  in  layers.  With  constant  travel  and  the  action  of  the  weather, 
these  loose  rocks  soon  become  worked  into  the  metal  of  the  road. 

There  are  thousands  of  miles  of  such  roads  in  the  counties  comprising  the 
central  portion  of  the  state  generally  spoken  of  as  the  Blue  Grass.  In  Fayette 
County  alone,  which  is  the  central  county  of  this  section  and  of  which  Lexing- 
ton is  the  county  seat,  there  are  more  than  350  miles  of  these  pikes.  This} 
county  is  scarcely  more  than  twenty  miles  wide  in  its  widest  point. 

From  Lexington  there  are  thirteen  pikes  radiating  in  all  directions  to  vari- 
ous other  cities  in  the  Blue  Grass  and  to  Cincinnati  and  Louisville1,  a  distance 
of  79  and  88  miles  respectively  by  railroad.  All  of  these  highways  are  kept 
in  most  excellent  condition  and  there  is  never  a  time  in  the  worst  weather  but 
what  these  pikes  are  not  only  passable,  but  are  in  as  good  condition  or  even 
better  than  the  outlying  macadamized  streets  of  most  cities. 

The  county  of  Fayette  maintains  these  roads  at  a  cost  of  from  $65,000  to 
$90,000  per  year.  These  expenses  are  met  out  of  the  general  tax  levy  whidh 
is  51  cents  on  the  $100  of  assessed  valuation.  The  surrounding  counties  main- 
tain their  pikes  in  like  manner. 

Because  of  these  superb  roads,  Lexington  is  summer  headquarters  for  thou- 
sands of  automobile  tourists  who  annually  visit  this  country  and  spend  from 
one  to  six  weeks  in  the  pleasant  enjoyment  of  driving  over  these  roads.  Every 
summer  all  of  these  pikes  are  oiled  with  crude  petroleum  at  the  expense  of  the 
county.  This  effectually  lays  the  dust  until  the  next  summer.  Hundreds  of 
thousands  of  gallons  of  oil  are  used  in  this  manner  every  year. 

The  Blue  Grass  pikes  have  been  in  existence  for  a  great  many  years. 
They  were  originally  built  by  private  persons  or  companies  and  were  in  a  meas- 
ure owned  by  such  persons  or  companies.  Toll  gates  were  erected  at  different 
points  along  the  pikes  and  a  charge  or  fee  was  collected  for  traveling  over 
them.  About  twenty  years  ago  the  counties  bought  all  of  these  pikes  and 
since  that  they  have  been  maintained  out  of  the  public  purse  and  no  charge  for 
traveling  over  them  made.  None  of  the  old  toll  gates  are  in  use  today  although 
a  number  of  them  still  stand  near  the  road  side  making  picturesque  sentinels 
of  the  highway. 

As  a  result  of  these  roads,  the  percentage  of  farmers  owning  automobiles 
is  remarkably  high.  Many  of  the  business  men  of  the  section  live  on  farms 
many  miles  from  the  city  and  go  back  and  forth  every  day  to  and  from  their/ 
work  in  their  motor  cars.  The  automobile  business  of  Lexington  alone,  a  city 
of  35,000  population,  for  the  year  of  191 1  was  more  than  $500,000. 


146  City  Building. 


Some  of  the  most  elegant  driveways  to  be  found  any  place  are  surrounding 
Boston.  In  fact,  from  New  York  to  Boston  and  for  many  miles  beyond  the 
parkways  seem  to  be  the  scene  of  one  constant  double  parade,  one  outward 
bound  and  the  other  inward  bound.  These  "parkways,"  as  they  are  called,  are 
constructed  of  sand  which  is  given  a  special  treatment  of  asphalt  and  road  oil. 
The  result  is  a  surface  as  smooth  as  asphalt  and  from  which  dust  is  absolutely 
eliminated. 

Who  has  not  heard  of  the  famous  shell  roads  of  the  South?  Florida  is 
famous  for  these,  Texas  and  Louisiana  also.  They  are  made  of  the  small 
mollusk  shells  from  the  sea  and  oyster  shells  which  are  crushed  and  spread  on 
the  road  beds.  They  make  an  elegant  road  with  the  sole  fault  of  wearing  out 
rather  quickly. 

Marshall,  Texas,  claims  the  best  roads  in  all  of  the  eastern  portion  of  that 
state.  The  county  keeps  two  gangs  of  laborers  at  work  constantly  on  them 
both  in  repairing  and  building. 

Montgomery  County  is  the  banner  farming  county  of  Alabama,  due  to 
the  fact  that  it  has  650  miles  of  public  roads.  Four  hundred  miles  of  these 
roads  were  built  by  competent  engineers  and  are  as  smooth  as  asphalt  pave- 
ments. Country  life  here  is  ideal.  Many  farmers  own  motor  cars.  The  schools 
are  good  and  churches  are  numerous. 

Some  of  the  finest  roads  of  the  country  are  to  be  found  in  Michigan,  espe- 
cially in  the  vicinity  of  Detroit.  Indiana  and  Illinois  has  its  quota  of  good 
roads  in  certain  sections. 

In  some  portions  of  Ohio  and  Pennsylvania  the  cities  and  counties  have 
combined  and  have  paved  the  principal  county  roads  with  brick.  This  is  a  most 
expensive  method  of  construction  but  it  is  claimed  by  these  communities  that 
the  expense  is  justified  by  the  increased  ease  with  which  farmers  can  reach  the 
markets  both  for  buying  and  selling. 

California  also  has  its  fine  roads.  Through  the  San  Joaquin  and  San  Jose 
valleys  the  highways  are  of  the  best  order. 


Good  Roads.  14/ 


IV 
Some  National  Highways 


Some  of  the  national  highways  proposed  and  under  construction  in  the 
United  States  run  from  north  to  south,  others  from  east  to  west.  In  connec- 
tion with  the  national  highway  movement,  goes  the  movement  for  state  high- 
ways which  are  being  constructed  in  many  states. 

It  is  proposed  that  the  Quebec-Miami  Road  shall  run  from  Quebec,  Canada, 
to  Miami,  Florida.  It  is  reported  that  considerable  progress  has  been  made 
and  that  definite  arrangements  have  been  completed  for  the  construction  of  the 
major  portion  of  the  route.  The  project  first  took  definite  shape  in  November, 
1911,  at  Richmond,  Virginia.  The  province  of  Quebec  recently  voted  $10,000,000 
for  road  work.  A  portion  of  this  sum  will  be  used  to  construct  the  road  be^- 
tween  Quebec  and  the  American  border.  From  this  point  to  Albany,  New  York, 
the  road  will  be  built  by  the  State  of  New  York;  from  Albany  to  Philadelphia 
existing  roads  are  to  be  used;  from  Philadelphia  south  to  the  Pennsylvania 
line,  the  road  will  be  built  by  the  State  of  Pennsylvania.  The  State  of  Mary- 
land, from  a  special  fund,  will  build  the  road  from  the  Pennsylvania  line  to 
•Baltimore,  and  the  state  will  also  construct  the  road  from  Baltimore  to  Wash- 
ington with  funds  available  out  of  the  monies  handled  by  the  Maryland  State 
Roads  Commission.  A  subscription  of  $75,000  raised  in  Washington  and  an- 
other equal  amount  raised  in  Richmond,  Virginia,  together  with  a  sufficient 
amount  promised  by  the  counties  through  which  the  road  will  run  between 
Washington  and  Richmond  has  been  provided  to  construct  the  road  from 
Washington  to  Richmond. 

The  Capital  Highway  Association  is  co-operating  with  the  Quebec-Miami 
National  Highway  Association  to  build  the  road  south  from  Richmond  to 
Miami,  Florida.  The  road  will  traverse  the  states  of  North  and  South  Carolina, 
Georgia  and  Florida.  State,  municipal  and  private  funds  have  been  contributed 
for  the  construction  of  the  links  required  to  make  the  necessary  connections 
with  existing  roads.  The  latest  report  from  this  project  is  that  the  entire  road 
will  be  completed  in  the  near  future. 

Another  national  highway  has  been  constructed  from  Omaha  to  Denver, 
Colorado.  This  road  was  established  through  the  efforts  of  the  Omaha-Denver 
Good  Roads  Association  which  was  organized  in  May,  1911.  Over  $70,000  was 
expended  in  the  construction  of  this  highway.  Along  many  portions  of  the 
route  farmers  pledged  themselves  to  build  and  maintain  the  road  past  their 
respective  farms. 

Another  international  highway  is  that  extending  from  Winnipeg,  Canada, 
south  across  the  United  States  to  Galveston,  Texas,  the  route  passing  through 
six  states  and  part  of  Canada. 

_  In  South  Dakota  the  greatest  active  interest  has  been  taken  along  the 
entire  line  of  this  highway  by  the  various  commercial  and  automobile  clubs 
with  the  result  that  the  construction  of  the  road  is  assured. 

One  of  the  greatest  road  building  features  ever  attempted  in  this  country 
was  that  of  constructing  the  "River  to  River  road"  across  the  State  of  Iowa. 
This  tremendous  "task"  was  accomplished  in  one  day.  A  strong  campaign  was 
waged  for  several  weeks  prior  to  a  given  day  throughout  the  state  for  the  pur- 


148  City  Building. 


pose  of  securing  the  agreement  of  the  farmers  and  other  people  along  the  route 
to  furnish  labor  and  teams  on  this  particular  day  for  the  building  of  this  rqad. 
At  daybreak  on  the  day  set  thousands  of  men  and  teams  were  distributed  along 
the  line  and  when  night  had  fallen  the  road  across  the  State  of  Iowa  had  been 
constructed. 

It  is  proposed  to  build  a  cross  state  highway  in  South  Dakota  four  hun- 
dred miles  in  length.  The  route  as  proposed  will  cross  the  state  from  easlt  to 
west. 

In  September,  1912,  the  people  of  Ohio  voted  to  issue  $50,000,000  of  state 
bonds  to  be  invested  in  good  roads.  The  Ohio  Good  Roads  Federation  has 
proposed  an  Inter-County  system  of  roads,  which  when  completed  will  connect 
every  county  in  the  state  with  every  other  county  by  a  direct  line  of  highway 
travel.  When  this  system  is  completed  the  State  of  Ohio  will  have  a  highway 
system  through  the  state  which  will  be  second  to  none. 

It  is  proposed  to  construct  a  two  hundred  foot  highway  through  the  Stiat^ 
of  Delaware.  This  road  will  start  at  the  Pennsylvania  line  in  the  northeastern 
part  of  the  state  running  thence  mainly  by  long  easy  curves  to  Wilmington 
and  on  through  Newcastle,  Odessa,  Smyrna,  Dover,  Milford,  Georgetown  to 
Shelbyville  on  the  Maryland  line.  The  road  will  be  constructed  of  water- 
bound  macadam  or  concrete  base,  on  top  of  which  will  be  laid  asphalt  and  stone 
mixed. 

Other  national  highways  proposed  are  transcontinental  roads  from  the  east 
to  the  west ;  one  across  the  southern  part  of  the  country ;  one  through  the  cen- 
tral part  and  one  traversing  the  northern  states. 

Another  road  proposed  is  the  lakes  to  the  gulf  road  from  Chicago  to  NeJw 
Orleans. 

The  state  highway  from  Louisville  to  the  Lincoln  Memorial  Park  at 
Hodgenville,  Kentucky,  bids  fair  to  assume  national  proportions  through  its 
connection  at  Louisville  with  several  of  the  national  highways  in  the  north  and 
east. 


Good  Roads.  149 


V 
Approved  Methods  of  Building  Improved  Roads 


It  is  estimated  by  the  United  States  Office  of  Public  Roads  that  there  is  a 
total  mileage  of  190,479  miles  of  improved  roads  in  the  United  States,  or  less  than 
nine  per  cent  of  the  total  mileage  of  all  public  roads  in  1909  aggregating 
2,199,465  miles.  The  Office  of  Public  Roads  estimates  the  average  cost  per  mile 
of  improved  roads  in  the  various  states  as  follows:  Sand-clay  $723  per  mile; 
Gravel  $2,047  per  mile;  Macadam  $3,989  per  mile;  Bituminous  $10,348  per  mile. 

One  of  the  most  popular  forms  of  road  improvement  is  the  construction  of 
highways  with  macadam.  The  first  attempt  in  this  country  to  use  macadam 
was  in  building  the  Lancaster  turnpike  from  Philadelphia  to  Lancaster,  Penn- 
sylvania in  1792.  The  road  was  laid  out  and  graded,  and  bowldeTs.  rocks  and 
stones  of  all  sizes  were  thrown  in  and  covered  with  earth.  The  result  was  a 
failure.  The  rains  washed  away  the  dirt  leaving  crevices  and  chasms  into 
which  the  horses  plunged,  often  breaking  their  legs  and  wrecking  ther  velucles. 
The  road  was  practically  abandoned  for  a  time,  but  was  finally  reconstructed 
on  the  macadam  plan.  This  time  the  rock  was  carefully  crushed,  no  stones 
being  used  that  would  not  go  through  a  two-inch  ring.  The  result  was  a  pro- 
nounced success.  "::;^~    7 

A  movement  to  build  macadam  turnpikes  was  started  everywhere.  By  1811 
317  turnpikes  had  been  chartered  in  New  York  and  the  New  England  States 
having  an  aggregate  length  of  over  $4,500  miles  and  a  total  capitalization  of 
over  $7,500,000. 

Some  of  the  greatest  macadamized  roads  to  be  found  anywhere  are  those 
in  the  Blue  Grass  region  of  Kentucky.  The  method  of  construction  is  as  fol- 
lows :  First  the  road  bed  is  graded  so  as  to  give  a  crown  of  several  inches,  next 
crushed  rock  not  to  exceed  in  size  stones  which  will  not  pass  through  a  two- 
inch  ring  is  spread  to  the  depth  of  several  inches  upon  the  road  bed.  This  fa 
rolled  by  a  heavy  steam  roller  and  then  other  layers  of  smaller  crushed  roick 
is  spread.  Each  layer  is  rolled  and  each  succeeding  layer  is  smaller  in  size, 
than  the  preceding  one. 

The  limestone  rock  of  which  these  roads  are  constructed  is  of  such  a  char- 
acter that  the  rains  and  travel  work  the  stone  into  "metal"  which  forms  a* 
uniform  surface  of  smooth  character  without  cracks  or  crevices.  By  proper 
grading  surplus  water  is  drained  to  the  side  ditches  along  the  road  and  a  road 
so  constructed  makes  splendid  travel  in  all  seasons  of  the  year. 

Where  gravel  is  available  at  a  reasonable  cost  the  popular  form  of  road 
construction  is  the  gravel  highway.  In  some  sections  of  the  country  the  soil 
is  of  such  a  character  that  when  a  small  portion  of  it  is  mixed  with  the  gravel 
and  laid  upon  the  road  the  rains  and  travel  mix  the  two,  gravel  and  darth,  to- 
gether until  it  forms  almost  a  concrete.  These  roads  are  practically  indestructi- 
ble. Along  the  coasts,  shell  roads  are  very  numerous.  These  are  constructed 
bv  spreading  upon  the  graded  road  bed  layer  after  layer  of  crushed  mollusk 
shells.  The  chief  objection  to  this  kind  of  road  is  that  under  heavy  travel  it 
deteriorates  rapidly.    During  its  lifetime  however,  it  makes  an  elegant  road  bed. 

The  sand-clay  road  is  one  of  the  cheap  methods  of  constructing  improved 
roads  and  for  its  cost  is  very  satisfactory.    As  said  in  the  paragraph  above  con- 


150  City  Building. 


cerning  gravel  roads  the  method  used  in  the  construction  of  sand-clay  roads  is 
to  mix  a  certain  portion  of  sand  with  a  certain  portion  of  clay  and  the  action 
of  the  elements  will  cement  the  two  together  into  a  compact  mass. 

On  all  of  these  roads  the  approved  method  of  preventing  dust,  and  at  the 
same  time  adding  to  the  life  of  the  road  is  the  spreading  of  road  oil.  The  oHl 
not  only  lays  the  dust  but  also  acts  as  a  binder  thereby  holding  the  road  ma- 
terials in  a  more  compact  mass. 

One  of  the  cheapest  forms  of  improving  the  ordinary  dirt  road  is  by  the 
dragging  process.  Tn  many  of  the  farming  communities  in  the  west  this 
method  is  largely  used.  As  early  in  the  spring  as  it  is  possible  to  work  f4he 
roads  a  road  grader  is  put  to  work,  giving  a  crown  of  several  inches  to  the 
road  bed.  Where  it  is  possible  a  road  roller  is  then  used.  Thereafter  durfing 
the  summer  immediately  after  a  rain  the  farmers  take  turns  at  dragging  the 
road.  The  drag  is  simply  a  road  blade  to  which  is  hitched  one  or  more  teams 
of  horses.  This  is  dragged  along  each  side  of  the  road.  The  road  blade  picks 
up  the  dirt  from  the  high  places  and  drops  it  automatically  in  the  hollows.  Iji 
this  way  the  roads  are  kept  free  from  ruts  and  less  dust  is  to  be  found  on  sucji 
roads  than  on  those  where  no  attention  is  paid  to  them. 

In  parts  of  Pennsylvania  and  Ohio  many  miles  of  roads  have  been  paved 
through  the  rural  districts  with  brick.  This  is  one  of  the  most  expensive  forms 
of  construction  but  it  is  estimated  that  the  life  of  such  a  road  is  anywhere  front 
fifteen  to  twenty  years  and  that  in  the  long  run  the  extra  cost  is  justified  in  tJhe 
longevity  of  the  road. 

The  bituminous  road,  the  use  of  asphalt  binder  and  asphalt  are  also  popu- 
lar forms  of  improved  road  construction.  They  all  combine  as  the  principal 
feature  the  use  of  road  oil  and  asphalt  as  a  binder  of  the  materials  used  into  a 
compact  mass  for  the  road  surface. 


Good  Roads.  151 


VI 
How  to  Finance  Construction  of  Improved  Roads 


The  most  prevalent  method  of  financing  improved  highway  construction 
in  this  country  today  is  by  means  of  bond  issues.  Federal  aid  also  is  secured 
for  special  roads  in  various  sections  of  the  country  by  means  of  congressional 
appropriations. 

Some  of  the  states  have  the  right  to  issue  state  bonds  for  road  building 
and  most  of  them  have  the  power  to  use  a  certain  portion  of  the  general 
tax  revenues.  Counties  in  most  of  the  states  may  issue  bonds,  the  revenue 
derived  from  the  sale  of  which  is  to  be  used  for  building  highways.  Most  of 
the  counties  also  possess  the  right  to  use  a  portion  of  the  general  fund  derived 
from  taxes  for  not  only  the  maintenance  and  repairing  of  existing  roads  but 
also  for  the  construction  of  new  roads. 

Texas  perhaps  heads  all  of  the  states  in  financing  road  building  operations 
by  means  of  county  bond  issues.  During  the  year  of  1911,  forty-nine  counties 
of  that  state  carried  bond  issues,  the  money  to  be  used  for  road  building,  the 
total  aggregating  $7,975,500.  Twelve  counties  in  February,  1912,  voted  further 
bond  issues  totaling  $2,250,000.  Texas  claims  to  have  the  best  roads  of  any 
state  in  the  Union.  The  large  sums  of  money  being  expended  for  road  irru- 
provament  in  that  state  as  indicated  by  the  above  figures  go  a  long  way  to  sub- 
stantiate such  a  claim  for  supremacy. 

State  Highway  Commissioner  Wilson  of  Virginia  reports  that  nineteen  coun- 
ties of  that  state  had  authorized  up  to  the  close  of  the  fiscal  year,  September 
30,  1911,  bond  issues  amounting  to  $3,853,000.  During  the  same  period  ninety- 
three  of  the  one  hundred  counties  of  the  state  had  made  use  of  state  aid  in  some 
form  or  other. 

In  Tennessee,  on  one  of  the  proposed  trans-state  highways  the  counties 
through  which  the  route  will  pass  have  raised  funds  amounting  to  $600,000. 
Besides  this,  bond  issues  in  1911  amounted  to  $2,109,933. 

Convict  labor  has  been  extensively  used  in  South  Carolina,  the  average 
number  of  convicts  employed  per  day  throughout  the  various  counties  being 
995  and  varying  from  six  to  sixty-three  in  individual  counties. 

In  Bradley,  Desha,  St.  Francis  and  Sharp  Counties,  Arkansas,  a  3-mill  levy 
is  made  for  road  and  bridge  purposes.  In  St.  Frances  County,  this  amounts 
to  about  $18,000  and  is  voted  in  October  of  each  year.  This  amount,  together 
with  $4,000  per  year  from  the  general  funds  of  that  county,  is  expended  on 
road  and  bridge  work.  Sharp  County  reports  about  $6,000  available  from  the 
road  fund  for  1912  work. 

Phillipps  County,  Arkansas,  has  a  total  mileage  of  700  miles,  of  which  400 
miles  are  main  highways.  All  are  earth  roads.  In  1911  the  total  expenditure 
was  $48,000,  of  which  the  sum  of  $10,500  was  spent  for  bridge  work  and  $3,700 
for  culverts.  The  amount  available  for  work  in  1912  is  $37,500,  of  which 
$10,000  will  be  spent  for  bridge  work.  The  county  levies  a  3-mill  special  road 
tax,  and  every  male  citizen  between  18  and  45  years  of  age  is  required  to  fur- 
nish ten  days'  labor  on  the  roads.  There  is  a  movement  on  foot  to  make  the 
county  into  a  road  improvement  district  for  the  building  of  pikes.     If  this  is 


152  City  Building. 


done,  it  is  stated,  it  will  mean  the  expenditure  of  over  $1,500,000  and  the  making 
of  220  miles  of  turnpikes. 

In  Delta  County,  Colorado,  all  funds  are  secured  from  direct  tax  levies, 
no  bonds  being  issued  for  either  road  or  bridge  work.  Road  work  is  adminis- 
tered by  road  supervisors  appointed  by  and  answerable  to  the  Board  of  County 
Commissioners. 

During  1911  the  sum  of  $22,875.15  was  expended  on  roads  in  Montrose 
County,  Colorado,  on  roads.  $6,031.45  from  county  funds  was  expended  on 
bridges,  and  donations  amounting  to  $2,239.15  were  made,  either  in  cash  or 
labor,  by  the  farmers.  For  1912  there  will  be  available  from  taxes  $30,886  for 
roads  and  $9,084  for  bridges.  In  addition  to  this,  pledges  have  been  made  for 
donations  of  labor  amounting  in  value  to  $2,100.  In  addition  to  these  amounts, 
it  is  expected  that  there  will  be  available  $12,000  from  the  state  fund.  Nb 
bonds  are  issued  by  the  county. 

In  a  number  of  places,  it  has  been  found  difficult  to  secure  the  interest 
of  the  county  authorities  in  the  building  of  improved  roads  and  the  merchants 
and  various  business  concerns  of  the  larger  towns  have  contributed  large  sums 
of  money  by  popular  subscriptions  to  build  some  experimental  roads.  After 
such  roads  were  built  it  was  not  found  difficult  to  secure  funds  from  the  county 
to  continue  the  work. 

As  suggested  above,  the  farmers  in  many  communities  co-operate  in  not 
only  maintaining  the  road  in  good  condition  by  repairing,  but  also  in  many 
cases  they  build  the  roads  outright. 

In  most  of  the  states  the  automobile  licenses  go  to  the  maintenance  and 
building  of  roads.  In  many  of  the  states  the  money  derived  from  this  source 
amounts  to  several  hundred  thousand  dollars  each  year. 

In  September,  1912,  the  people  of  Ohio  voted  $50,000,000  in  bonds  to  be 
used  in  constructing  roads  throughout  that  state.  This  money  is  to  be  prorated 
among  all  of  the  counties  in  the  state  and  each  will  receive  its  proportionate 
benefit 

The  method  of  financing  road  building  operations  by  a  direct  tax  for  this 
purpose  is  fast  finding  favor.  This  method  gives  a  certain  specified  sum  avail- 
able each  year  and  one  year  with  another  and  in  many  communities  it  is  looked 
upon  with  much  greater  favor  than  the  issuing  of  bonds  or  any  other  system  of 
financing  the  building  of  good  roads. 


Agriculture.  153 


CHAPTER  13. 

AGRICULTURE 


Back  to  the  Farm  Movement. 

The  tremendous  increase  in  the  population  in  the  cities  in  comparison  to 
the  population  increase  of  the  rural  districts  during  the  past  decade,  as  shown 
by  the  census  of  1910,  has  given  the  people  of  the  country  a  very  good  reason 
for  partially  accounting  for  the  increased  cost  of  living.  The  census  of  1900 
showed  that  the  percentage  of  the  people  living  in  the  city  was  33  1-3  percent 
of  all  inhabitants,  while  the  1910  census  shows  that  this  percentage  has  been 
increased  to  46  percent.  The  deduction  is  that  great  numbers  of  people  are 
leaving  the  farms  for — to  them — the  more  attractive  pursuits  and  professions 
in  the  city. 

To  stem  the  tide,  the  back  to  the  farm  movement  has  been  inaugurated 
and  where  a  few  years  ago  only  a  paucity  of  effort  to  assist  the  farmer  and 
to  make  his  profession  more  agreeable  and  profitable,  today  there  is  a  tremend- 
ous power  at  work  throughout  the  nation  to  turn  the  stream  of  moving  human- 
ity back  to  agricultural  pursuits.  Never  before  has  there  been  the  attention 
paid  to  every  phase  of  farm  life  as  there  is  today  with  the  inevitable  result  that 
the  tide  is  being  slowly  turned,  and  the  farm,  formerly  held  so  unattrac- 
tive by  the  youth,  is  made  to  appear  as  his  salvation,  and  he  is  entering 
the  splendidly  equipped  agricultural  colleges  for  the  purpose  of  learning 
the  science  of  agriculture.  And  never  was  a  better  work  done  than  when 
the  young  man  was  lately  taught  that  farming  was  a  business  and  a  science, 
in  which,  to  obtain  success,  one  had  to  master  the  principles,  and  that  suc- 
cess could  not  be  attained  by  working  in  the  slipshop,  hit-or-miss  style 
prevalent  until  the  immediate  present. 

The  business  interests  of  the  various  cities  have  awakened  to  the  necessity 
of  stimulating  greater  agricultural  activity  and  through  their  commercial  organi- 
zations are  co-operating  with  the  Department  of  Agriculture,  the  Experiment 
Stations  and  Agricultural  Colleges  of  various  states  and  all  other  agencies 
for  the  purpose  of  disseminating  needful  knowledge  among  the  farmers  and  in 
every  way  to  increase  their  efficiency.  The  great  railroads  have  entered  into 
the  work  with  a  zeal  that  is  born  of  the  knowledge  that  increased  earnings  on 
their  properties  depend  solely  upon  the  number  and  success  of  the  people 
living  in  the  territory  tributary  to  their  lines. 

For  example,  the  Southern  Railway  is  organizing  throughout  the  territory 
it  traverses  live  stock  associations  to  stimulate  progress  along  the  line  of  raising 
and  breeding  better  and  finer  stock  and  for  the  protection  of  the  members  of 
the  association  in  other  directions.  Auction  sales  and  exhibits  of  live  stock  and 
all  farm  products  are  encouraged.  Farm  demonstration  trains  are  operated 
with  the  idea  that  if  the  farmer  cannot  or  will  not  go  to  the  school,  the  sdhool 
will  be  taken  to  him. 

The  Texas  Commercial  Secretaries  Association  carries  on  work  of  similar 
character.  This  association  urges  the  commercial  organizations  throughout  the 
state  to  do  all  in  their  power  to  stimulate  increased  production  from  the  farm- 
ers, to  hold  exhibits  of  poultry  and  live  stock.    Many  of  the  towns  hold  monthly 


154  City  Building. 


exhibits.    There  are  thirty-two  county  fairs  held  every  fall  in  which  more  than 
$200,000  is  given  away  in  premiums. 

The  Department  of  Agriculture  is  today  doing  more  than  distribute 
garden  and  farm  seeds.  The  various  divisions  or  bureaus  of  the  Department 
have  finally  become  appreciated  and,  consequently,  have  their  hands  full  supply- 
ing the  demand  upon  them  for  information,  instruction  and  demonstrators. 
Besides  this,  the  Bureau  of  Immigration  and  Naturalization  of  Department 
of  Commerce  and  Labor  has  been  called  into  service  in  the  back  to  the  farm 
movement  and  is  meeting  with  increased  success  in  its  efforts  to  steer  the  great 
armies  of  immigrants  to  the  unoccupied  lands  in  the  rural  districts,  thereby 
relieving  in  large  measure  the  burden  of  the  cities  in  caring  for  the  un- 
employed. 

It  is  the  duty  of  the  business  interests  of  the  country  to  bestir  themselves 
to  even  greater  activity  in  their  support  of  the  profession  of  agriculture.  It  is 
a  sad  fact  that  the  great  majority  of  cities  which,  through  their  commercial 
organizations  are  stretching  their  resources  to  the  limit  in  the  mad  scramble 
for  factories,  pay  very  little  attention,  if  any,  to  the  necessity  of  keeping  the 
surrounding  rural  territory  up  to  as  high  a  state  of  efficiency  as  the  city.  Agri- 
culture has  always  been  and  will  forever  continue  to  be  the  backbone  of  the 
country  but  it  has  been  sadly  neglected  with  the  inevitable  result  that  produc- 
tion of  farm  products  has  not  increased  in  proportion  to  the  increase  of  popu- 
lation. Consequently,  it  is  small  wonder  that  farm  products  today  command 
higher  prices  than  ever  before.  The  only  solution  for  the  problem  is  the  in- 
creased production  through  intensive  and  rational  farming  methods. 

The  solution  is  on  its  way  as  evidenced  by  the  unquestioned  support  being 
given  to  the  question  of  increased  agricultural  efficiency.  The  Southern  Com- 
mercial Secretaries  in  their  1911  convention  passed  the  following  resolution 
which  indicates  in  some  measure  the  attention  which  this  subject  is  receiving 
from  the  business  minds  of  the  country : 

"Fifth,  that  we  endorse  the  idea  of  the  employment  of  a  special  agricul- 
tural expert  for  every  county  in  the  South ;  that  we  commend  the  provision  of 
the  federal  government,  through  the  agricultural  department,  which  offers  not 
only  a  complete  course  in  scientific  agriculture  but  makes  it  possible  for  every 
county  to  have  its  own  expert,  devoting  his  whole  time  to  that  county's  improve- 
ment, that  we  call  on  the  legislature  of  all  the  states  in  the  South,  not  now 
having  such  a  law,  to  immediately  authorize  county  courts  to  appropriate  from 
the  funds  of  the  county  a  sufficient  amount  of  money  which,  together  with  the 
allowance  from  the  federal  government,  will  enable  each  county  to  have  its 
own  agricultural  expert  under  present  federal  provisions  and  plan." 


Agriculture.  155 


II 
The  Municipal  Market 


So  many  cities  have  established  municipal  markets  with  such  success  that 
the  subject  has  become  a  vital  one  for  consideration  by  every  city.  Especially 
is  this  true  in  the  face  ^f  the  tremendously  increased  cost  of  living,  as  it  is 
claimed  for  the  municipal  market  that  it  has  done  much  wherever  established 
to  decrease  the  cost  of  garden  produce. 

General  method  of  conducting  the  market  is  under  supervision  of  the 
city,  either  in  open  squares,  under  sheds  or  on  the  interior  of  great  build- 
ings used  exclusively  for  this  purpose.  Where  the  market  is  conducted  in  the 
open  squares  it  is  usually  run  only  during  the  summer  months,  while  in  the 
buildings  the  market  is  open  the  year  around.  There  are  exceedingly  few  cases 
where  the  municipal  market  has  been  established  that  it  has  been  discontinued 
for  want  of  support  or  for  other  reasons  of  inefficiency.  In  Omaha,  .a  mar- 
ket was  established  in  the  center  of  the  city  which  was  afterward  torn  down 
and  the  street  on  which  it  was  built  thrown  open  again  as  a  thoroughfare. 
Some  of  the  enemies  of  the  market  point  to  this  instance  in  support  of  their 
argument  that  the  market  is  not  good.  But  while  it  is  true  that  that  particular 
market  was  abandoned,  another  has  been  established  in  the  wholesale  and  com- 
mission district  which  serves  the  same  purpose  as  the  former  one  was  intended 
to  serve. 

Owing  to  the  success  of  the  municipal  market  in  DesMoines,  Iowa,  prices 
on  edibles  have  been  reduced  from  twenty  to  fifty  per  cent  and  a  new  market 
is  to  be  built  at  a  cost  of  $50,000.  In  stating  some  of  the  benefits  of  this  market, 
a  DesMoines  man  says:  "In  the  market  the  producer  and  the  consumer  come 
face  to  face.  The  man  who  grew  the  sweet  corn  places  it  in  the  hands  of  the 
housewife  who  is  to  serve  it  on  her  table.  The  middleman  who  used  to  take 
their  toll  on  those  dozen  ears  of  corn  are  minus  their  old  profits,  but  the  farmer 
gets  a  little  more  and  the  housewife  pays  a  little  less." 

Most  of  the  cities  which  conduct  municipal  markets  realize  a  revenue  from 
them  in  rents  and  licenses.  Buffalo  conducts  four  markets,  located  in  different 
sections  of  the  city.  They  are  all  under  one  superintendent  who  is  paid  a  salary 
of  $2,200.  The  rentals  and  fees  were  fixed  by  the  Common  Council,  with  the 
approval  of  the  Mayor.  The  stall  and  booth  tenants  are  required  to  take  out  a 
yearly  lease,  and  rents  are  paid  to  the  City  Treasurer  in  four  quarterly  pay- 
ments in  advance.  The  farmers,  market  gardeners  and  hucksters  pay  a  daily 
fee,  a  single  wagon  paying  15  cents  and  a  team  25  cents.  The  fee  is  collected 
by  the  superintendent  or  his  assistants,  who  in  turn  issue  a  certificate  showing 
that  the  fee  has  been  paid.  The  revenues  of  the  markets  for  the  last  fiscal  year 
totaled  $60,138.64. 

In  Rochester,  N.  Y.,  the  public  market  has  been  in  operation  for  seven 
years  and  is  located  in  an  open  square  and  was  provided  at  a  cost  of  $200,000. 
It  is  generally  patronized  by  all  classes  of  people  and  is  a  large  factor  in  re- 
ducing the  cost  of  garden  truck  to  the  consumer.  It  is  considered  a  great  suc- 
cess by  the  citizens  generally  and  has  already  become  too  small.  Plans  are 
now  under  way  for  the  extension  of  the  plan  very  materially. 


156  City  Building. 


In  Cincinnati,  some  of  the  butchers  and  florists  are  quartered  inside  the 
market  house.  Other  markets  are  held  in  open  squares  in  various  parts  of 
the  city.  Farmers  pay  no  license  but  produce  men  pay  $15  per  year  for  the 
privilege  of  selling  in  the  municipal  markets.  The  markets  are  under  the  con- 
trol of  a  Chief  Market  Master  and  his  assistants,  who  give  their  entire  time 
to  the  work  of  supervision. 

These  markets  are  patronized  by  all  classes  of  people,  and  reduce  very 
materially  the  cost  of  garden  truck,  etc.,  to  the  consumer.  The  system  is  con- 
sidered a  success,  not  only  by  the  city  ,but  also  by  citizens  generally.  They 
are  of  especial  benefit  to  the  people  who  are  paid  on  Saturday  and  go  to  market 
on  Saturday  evening. 

Where  a  city  wishes  to  establish  a  municipal  market,  one  of  the  best 
methods  is  to  secure  the  right  to  open  one  in  some  open  space  or  plot  of  ground 
as  near  to  the  center  of  the  city  as  practical.  There  is  hardly  a  question  but 
what  any  movement  looking  to  the  establishment  of  a  municipal  market  in  any 
city  which  does  not  already  possess  one  will  meet  with  the  bitter  opposition  of 
the  middlemen,  or  produce  commission  merchants  and  the  grocers,  who  see  in 
the  establishment  of  such  an  enterprise  the  dwindling  of  a  large  portion  of  their 
profits. 

The  consent  of  the  Mayor  to  use  city  owned  ground  can  in  nearly  any  case 
be  secured.  This  accomplished,  the  next  step  is  to  secure  as  many  truck  farm- 
ers as  possible  to  agree  to  bring  their  produce  to  this  square  on  certain  days 
during  the  week  and  during  certain  hours.  These  days  and  hours  are  then 
advertised  through  the  medium  of  the  local  newspapers  and  by  other  means, 
until  the  housewives  have  become  familiar  with  the  dates. 

The  patrons  will  visit  the  square  and  make  their  purchases  direct  from  the 
producers,  who  sell  at  an  increase  in  price  over  what  they  would  get  from  the 
commission  man  and  yet  at  a  lower  price  than  that  charged  by  the  grocer  or 
middleman. 

If  the  consent  to  use  a  vacant  plot  of  ground  is  secured  and  the  market  is 
opened  in  the  manner  described  above,  the  establishment  of  a  permanent  mu- 
nicipal market  will  then  take  care  of  itself.  The  demand  for  it  will  be  of  such 
a  character  that  it  will  be  inevitably  supplied.  Besides  it  will  not  seriously 
injure  the  commission  man,  who  buys  the  overplus  and  either  sells  it  to  those 
people  who  do  not  come  to  the  market  or  else  ships  it  to  other  markets. 


Agriculture.  157 


III 
Special  Publicity 


There  is  no  vocation  or  industry  which  demands  publicity  like  the  business 
of  agriculture;  nor  is  there  any  business  which  is  so  susceptible  of  exploitation 
through  advertising  as  agriculture.  Many  of  the  cities  and  rural  communities 
have  recognized  this  fact  and  have  begun  campaigns  of  publicity  for  the  pur- 
pose of  building  up  the  rural  districts  which  already  are  yielding  large  returns. 

The  mediums  through  which  this  publicity  can  be  given  are  almost  innumer- 
able and  their  use  depends  solely  upon  the  ingenuity  of  the  person  under  whose 
care  the  campaign  is  prosecuted.  There  are  however  some  suggestions  which 
are  available  to  every  community  and  which  are  outlined  below. 

One  of  the  first  requisit.es  for  a  successful  campaign  is  to  know  the  sub- 
ject. Systematic  study  of  agricultural  conditions  of  a  community  should  be 
made  before  exploitation  is  begun.  There  is  no  community  but  what  has  some 
salient  features  which  may  not  be  known  but  which  can  be  discovered  with  little 
trouble. 

Climatic  conditions  may  show  that  certain  kinds  of  produce  can  be  grown 
better  in  one  community  than  in  another.  The  character  of  the  soil  is  also  a 
large  factor  in  determining  the  kind  of  crops  which  will  be  most  success- 
ful, or  remunerative. 

The  states,  practically  all  of  them,  maintain  Experiment  Stations  and 
farms  where  all  kinds  of  crops  are  tried  out  under  normal  conditions  existing 
in  the  state  and  where  soil  analyses  are  made  to  understand  the  character 
of  different  soils  of  the  state.  Therefore  the  use  of  the  Experiment  Station 
is  advisable  for  ascertaining  much  needful  information  about  the  agricultural 
advantages  of  any  community. 

The  Department  of  Agriculture  at  Washington  is  also  another  prolific 
source  of  desirable  information  of  similar  nature.  This  Department  maintains 
various  bureaus  for  the  purpose  of  supplying  such  information  and  their  assist- 
ance can  be  readily  secured. 

A  little  study  of  local  conditions  will  probably  bring  to  light  some  particu- 
lar farmer  or  class  of  farmers  who  have  made  a  specialty  of  some  one  crop, 
for  instance,  strawberries.  An  interview  with  such  men  will  show  that  this 
crop,  or  some  other,  has  been  unusually  profitable  in  comparison  to  other  crops. 
There  has  been  many  a  truck  section  built  up  in  just  this  way.  The  peanut  in- 
dustry of  Norfolk,  Virginia,  had  its  beginning  in  a  small  way  and  today  the 
annual  revenue  to  that  section  of  country  from  this  crop  alone  is  $9,000,000!. 
The  bean  industry  of  Michigan  had  a  similar  start  and  today  practically  every- 
one in  this  country  eats  Michigan  beans. 

The  western  section  of  this  country  presents  one  of  the  best  examples  of 
what  can  be  done  through  the  medium  of  publicity  for  the  upbuilding  of  the 
agricultural  communities.  A  few  years  ago  practically  every  force  in  the  far 
west  was  brought  together  into  a  tremendous  boosting  campaign  to  exploit  the 
agricultural  resources  of  that  section.  These  forces  worked  individually  but  in 
large  measure  the  result  of  the  individual  action  was  a  concerted  campaign  of 
publicity. 


158  Ctty  Building. 


The  railroads  worked  with  the  towns  located  on  their  lines  not  only  to 
issue  handsome,  illustrated  booklets,  giving  facts,  and  figures  concerning  the 
agricultural  possibilities  of  the  respective  communities,  but  some  of  them  went 
so  far  as  to  issue  regularly  first-class  magazines  exploiting  such  subjects  and 
life  in  the  west  in  general.  All  of  the  railroads  had  their  own  individual  book- 
lets and  folders. 

Besides  this,  the  towns  and  individual  real  estate  concerns  in  the  town? 
maintained  strong  advertising  campaigns  in  eastern  newspapers  and  periodicals 
for  the  purpose  of  securing  inquirers  upon  whom  every  effort  was  used  to  turn 
them  into  settlers.  One  of  the  great  results  of  this  campaign  was  to  be  seen  in 
the  1910  census  report,  which  showed  that  the  western  section  of  this  country 
increased  fifty-one  and  a  half  percent  while  the  eastern  section  of  the  country 
increased  only  seventeen  per  cent  in  population. 

Another  similar  campaign  is  now  being  conducted  in  various  parts  of 
Canada,  with  the  result  that  many  thousands  of  settlers  are  being  attracted 
from  this  country  to  that  every  year.  Every  legitimate  means  of  publicity  is 
being  used  to  exploit  that  country.  Phages  upon  pages  of  newspaper  stories  and 
display  advertisements  are  being  used.  Personal  representatives  are  being  sent 
broadcast  throughout  the  states  to  meet  and  talk  with  the  farmers  in  person  to 
induce  them  to  locate  on  these  lands. 

Other  sections  of  this  country  are  giving  valuable  publicity  to  their  com- 
munities. Oklahoma  recently  sent  out  a  fully  equiped  train,  which  was  really 
a  full-fledged  exposition  of  the  resources  and  advantages  of  that  state  on 
wheels.  This  train  would  stop  in  a  city  and  purchase  large  advertising  space  in 
the  local  papers  for  the  purpose  of  letting  the  people  of  that  community  know 
of  the  train,  all  of  whom  were  given  a  cordial  invitation  to  visit  the  exhibit. 
This  campaign  has  resulted  in  the  location  of  many  hundreds  of  families  in  the 
state  of  Oklahoma. 

The  use  of  fairs,  live  stock  shows,  poultry  exhibits  and  agricultural  expo- 
sitions are  splendid  means  of  giving  valuable  publicity  to  the  resources  of  a 
community.  The  use  of  the  news  bureau  is  advisable  for  syndicating  articles 
over  the  country.  The  stereopticon  and  moving  picture  machine  is  effectively 
used  by  a  number  of  organizations.  Personal  letter  campaigns  and  co-operative 
work  with  the  agricultural  agents  of  the^  railroads  also  give  excellent  oppor- 
tunities for  publicity. 

In  the  large  ports  of  the  country  there  are  great  concerns  known  as  coloni- 
zation agents,  whose  business  it  is  to  select  locations  for  great  numbers  of  fam- 
ilies of  immigrants  who  desire  to  engage  in  agricultural  pursuits.  Consequently 
many  communities  have  been  paid  many  times  over  for  their  trouble  in  interest- 
ing these  agents  to  locate  these  families  in  these  particular  communities.  The 
Department  of  Commerce  and  Labor  through  its  Bureau  of  Immigration  and 
Naturalization  is  also  engaged  in  colonizing  these  immigrants  in  the  effort  to 
relieve  the  large  cities  of  the  burden  of  caring  for  the  unemployed. 


Agriculture.  159 


IV 
How  to  Organize  a  Growers  Association 


A  Grower's  Association  is  a  company  of  men  producing  any  of  the  agricul- 
tural products  who  band  themselves  into  a  co-operative  movement  for  the  pur- 
pose of  selling  those  products  for  the  highest  prices  and  to  the  best  advantages. 
Such  organizations  have  been  in  existence  for  a  number  of  years  in  different 
sections  of  the  country  and  through  their  medium  tremendous  crops  of  certain 
character  are  marketed  at  a  great  saving  in  expense  and  at  fair  prices.  The 
great  value  of  the  associations  is  not  so  much  in  the  increase  in  price  secured 
by  such  a  method  of  handling  the  product  as  it  is  in  the  saving  of  expense  of 
handling  the  product.  Under  the  association  method  these  products  are  handled 
in  such  a  manner  as  to  require  the  minimum  of  labor. 

The  usual  method  adopted  can  be  best  shown  by  a  concrete  example  of  the 
operations  of  one  of  them.  The  Payette  Valley  Fruit  Grower's  Association  is 
no  different  in  the  essentials  from  the  many  others  in  other  sections  of  the 
country.  The  fruit  growers  of  the  Payette  Valley  in  Idaho  organized  a  num- 
ber of  years  ago  an  association  for  the  purpose  of  marketing  the  melon  crop. 

A  meeting  of  these  growers  was  called  and  all  the  producers  were  requested 
to  be  present.  At  the  meeting  it  was  shown  that  in  order  to  reach  the  markets 
where  the  best  prices  were  to  be  had  it  would  be  necessary  for  several  growers 
to  combine  their  shipments  to  make  a  carload  lot  and  thus  obtain  a  greatly  re- 
duced freight  rate.  The  system  of  the  Rocky  Ford  (Colorado)  Melon  Grower's 
Association  was  given  as  the  reason  why  that  community  was  able  to  sell  in 
the  distant  market  and  to  maintain  prices  because  of  the  high  reputation  of  the 
melons  which  were  produced  and  maintained  by  a  thoroughly  organized 
campaign  of  publicity. 

It  did  not  require  much  urging  to  secure  the  signatures  of  the  Payette  Val- 
ley growers  to  an  agreement  to  enter  such  an  association.  A  constitution  was 
adopted  which  prescribed  the  form  and  purpose  of  the  organization.  The  affairs 
of  the  association  were  placed  in  the  hands  of  a  board  of  directors  for  control. 
This  board  selected  one  man  to  act  in  the  capacity  of  manager,  to  have  general 
charge  and  supervision  of  the  handling  of  the  crop,  the  packing,  shipping  and 
selling  of  the  melons. 

When  the  melons  were  ripe,  the  growers  brought  in  their  product  to  the 
one  packing  house,  where  they  were  packed  in  cases  by  experienced  persons  in 
the  most  acceptable  and  attractive  manner  ready  for  shipment  to  the  market. 
Because  of  the  combined  receipts  from  many  growers  every  day,  a  carload 
shipment  was  ready  for  market  every  day. 

Before  this  stage  of  the  process,  however,  the  manager  had  been  sent  into 
the  large  commission  markets  and  had  arranged  for  the  distribution  of  the 
melons.  What  outright  orders  or  sales  he  could  secure  he  sold  but  the  great 
bulk  of  the  crop,  as  is  usual,  was  consigned  to  the  commission  merchants  who 
in  turn  sold  the  melons  on  commission  to  the  dealers  in  various  parts  of  the 
country. 

When  a  grower  delivered  any  melons  to  the  packing  house,  he  was  given  a 
receipt  showing  amount  and  grade  of  his  delivery.  These  receipts  the  grower 
retained  for  settlement  when  the  melons  were  paid  for.     In  making  this  settle- 


160  City  Buildtng. 


ment  the  grower  received  the  cash  paid  for  the  grades  of  melons  according  to 
his  share  less  his  pro  rata  share  of  the  expenses  of  packing,  shipping,  selling 
and  all  other  charges  of  conducting  the  association  business,  such  as  manager's 
salary,  office  and  traveling  expenses  and  all  other  items  of  cost. 

The  result  of  the  first  year's  season  was  so  satisfactory  that  a  permanent 
association  was  formed  and  the  scope  of  operations  were  so  enlarged  as  to 
embrace  all  kinds  of  fruits — such  as  apples,  pears,  peaches,  prunes,  strawberries, 
raspberries  and  many  kinds  of  vegetables.  In  the  course  of  a  few  seasons  it 
was  found  advisable  to  establish  in  connection  with  this  organization  a  canning 
plant  where  the  surplus  stock  could  be  preserved  and  canned  and  sold  in 
the  canned  goods  market  with  the  result  that  these  growers  were  not  forced 
to  close  out  their  holdings  of  fresh  product  on  a  low  market,  hut  by  can- 
ning were  enabled  to  hold  this  surplus  for  better  prices  in  the  market  for 
canned  goods. 

Many  of  the  associations  not  only  employ  this  co-operative  method  of 
putting  their  crops  on  the  market,  but  go  farther  and  use  the  association  or- 
ganization to  do  their  advertising.  An  association  trade  mark  and  standard  of 
their  goods  are  established.  The  association  maintains  this  standard  by  a  rigid 
guarantee  of  satisfaction  to  its  customers  and  spends  large  sums  of  money 
in  a  national  advertising  campaign  of  the  trade  mark  and  quality  of  goods  sold 
under  the  trade  mark. 

'Essentially  the  same  plan  is  being  adopted  in  various  sections  of  the 
country  for  selling  not  only  truck  products  and  fruit,  but  also  many  other 
products  of  the  farmers.  For  example,  in  Paris,  Texas,  central  selling 
agencies  are  established  for  the  marketing  of  meats  as  well  as  truck. 

Most  any  community  can  establish  such  associations  with  benefit  to  itself. 
Many  communities  find  the  plan  to  be  one  of  the  strongest  stimuli  available 
for  the  upbuilding  of  some  particular  agricultural  product  which  the  commu- 
nity can  produce  in  great  quantities  but  which  has  not  been  pushed  because  of 
disadvantageous  location  or  for  any  other  reason.  It  is  the  old  proposition  that 
in  numbers  there  is  power. 


Agriculture.  161 


V 

The  Improvement  of  Present  Day  Farm  Life  Over  Old  Days 


A  condition  which  is  largely  responsible  for  the  turning  of  the  tide  of  im- 
migration from  the  city  back  to  the  farm  is  the  improvements  in  farm  life 
which  have  come  only  recently.  One  of  the  most  remarkable  developments  in 
the  entire  category  of  American  progress  is  that  of  farm  life.  From  all  indi- 
cations this  development  has  only  just  begun  and  the  next  decade  will  show 
fully  as  great  a  revolution  in  this  great  department  of  American  life  as  has 
been  accomplished  in  the  past  ten  years  where  the  progress  made  has  shown  at 
least  one  hundred  per  cent  increase  in  efficiency. 

There  are  few  who  have  attained  their  majority  but  who  can  easily  re- 
call the  days  when  a  trip  to  the  country  was  almost  as  laborious  as  a  present 
day  journey  from  coast  to  coast.  A  trip  to  the  farm  in  those  days  meant 
"roughing  it."  It  meant  a  shutting  of  oneself  off  from  communication  with  the 
outside  world.  The  farmer  in  those  days  made  periodic  trips  to  town  for  sup- 
plies and  to  learn  the  news.  The  country  paper  with  news  a  week  old  was  his 
principal  medium  of  keeping  track  of  politics  and  general  news.  His  life  was 
one  continual  round  of  routine.  He  accomplished  results  by  means  of  brawn 
and  sinew  rather  than  through  the  scientific  application  of  principles. 

His  children  were  fortunate  if  they  had  a  six  months'  winter  school  where 
one  teacher  taught  all  grades  and  classes  from  the  highest  to  the  lowest  and 
where  more  attention  seemed  to  be  paid  by  this  same  teacher  to  his  record  df 
whippings  administered  rather  than  the  number  and  quality  of  educated  chil- 
dren he  could  turn  out.  It  is  small  wonder  that  the  boy  and  girl  raised  under 
such  conditions  and  had  had  a  taste  of  city  life  when  they  were  able  to  Visit 
their  city  cousins  should  long  for  an  easier  life  and  consequently  seek  a  clerk- 
ship in  the  town  store  or  office. 

But  such  conditions  have  changed  until  today  the  life  on  tlie  farm  in  most 
every  section  of  this  country  has  almost  attained  the  ideal.  The  United  States 
government  is  in  large  measure  responsible  for  this  change.  The  Department 
of  Agriculture  has  long  since  recognized  that  agriculture  is  the  backbone  of 
this  country's  prosperity  and  when  the  increase  in  population  showed  the 
cities  were  gaining  upon  the  rural  districts  at  an  alarming  rate  immediate  steps 
were  taken  to  stem  this  tide  and  turn  it  back.  One  of  the  great  drawbacks  was 
recognized  in  the  lack  of  convenience.  Another  was  that  the  pursuits  of  city 
people  yielded  a  greater  profit  to  those  engaged  in  them  than  the  farming  did 
to  the  farmers. 

Consequently,  a  broad  and  comprehensive  campaign  of  education  was  begun 
which  was  constantly  made  stronger  and  broader  until  today  the  Department  is 
carrying  on  a  work  which  is  the  pride  of  the  country  and  the  envy  of  the 
nations. 

The  cities  were  shown  that  it  was  to  their  advantage  to  increase  agricul- 
tural efficiency  because  of  the  certainty  of  increased  wealth.  The  farmer  was 
shown  how  he  could  with  little  trouble  have  for  himself  most  of  the  city's  con- 
veniences. Experts  were  sent  direct  to  the  farmers  and  showed  them  how  by 
attention  to  principles  and  with  less  effort  a  greatly  increased  yield  in  products 
could  be  made.    The  states  took  up  the  fight  and  have  established  agricultural 


162  City  Building. 


colleges  where  the  young  farmers  can  be  educated  in  the  science  of  agri- 
culture. 

The  result  of  this  work  has  caused  the  awakening  of  America,  of  her  peo- 
ple in  every  walk  of  life  to  the  importance  of  agriculture  and  development  is 
the  watchword  throughout  every  section  of  the  land. 

The  farmer  today  is  in  as  close  touch  with  the  grain,  produce  and  maat 
market  quotations  as  the  banker  in  his  private  office  because  of  the  telephone. 
The  farmer  can  visit  the  city  almost  any  hour  of  the  day  by  the  interurban  and 
because  of  the  improvement  of  the  roads  he  can  haul  twice  as  much  of  his 
produce  to  market  as  formerly  and  at  less  expense  and  loss  of  time.  By  reason 
of  the  rural  free  delivery,  he  receives  his  mail  every  day  just  thd  same  as 
though  he  lived  in  the  country,  With  the  going  into  effect  of  the  parcels  post 
law,  his  wife  can  order  from  the  dry  goods  merchant  a  new  dress  and  have  it 
delivered  as  soon  as  if  she  were  living  in  the  city. 

His  children  go  to  school  in  a  modern  building  heated  by  steam,  well  ven- 
tilated and  lighted.  The  neighborhood  also  has  a  high  school  as  well 
equipped  as  those  in  the  city.  The  teachers  are  as  well  adapted  to  give 
instruction  as  those  in  the  city.  In  bad  weather,  the  small  children  are 
taken  to  the  school  and  returned  home  in  large  omnibuses,  and  altogether 
the  school  system  in  the  neighborhood  is  on  a  par  with  the  city  system. 

The  farmer  installs  a  gas  engine  which  generates  sufficient  electricity  to 
light  his  entire  farm  and  to  run  his  machinery,  the  feed  cutters,  the  churns, 
and  so  forth,  besides  pumping  water  into  the  high  reservoir  tank  to  give  an 
adequate  supply  for  the  baths  in  his  home  and  water  in  all  other  buildings  where 
it  is  needed. 

Because  the  farmer  is  now  farming  scientifically,  he  is  getting  greater  in- 
creased yield  per  acre  of  land  than  he  did  formerly  and  of  a  better  quality, 
therefore  commanding  a  higher  price.  This  gives  him  more  money  with  the 
result  that  he  now  owns  his  automobile.  Every  summer  or  winter  he  can  take 
his  family  on  a  pleasure  trip  to  some  resort  without  putting  a  mortgage  on  his 
farm.  Instead  of  his  paying  interest  on  borrowed  money  he  is  drawing  interest 
en  money  loaned  out.  Instead  of  his  making  a  hand  of  himself,  he  has 
learned  that  it  is  money  to  him  to  direct  the  work  of  others.  The  present 
day  farmer  is  an  example  of  prosperity. 


Agriculture.  163 


VI 
Colonization  Method  of  Upbuilding  Farming  Communities 


Many  communities  in  the  United  States  and  also  in  Canada  have  made  a 
remarkable  success  in  upbuilding  the  rural  districts  and  agricultural  sections 
through  the  colonization  method  of  locating  farmers  upon  idle  or  abandoned 
farms.  Various  methods  are  in  use  but  one  of  the  most  successful  is  that 
which  has  been  adopted  by  the  Canadian  Government. 

Through  this  metho.d  more  than  one  hundred  thousand  American  farmers 
are  annually  migrating  to  Canada  and  engaging  in  agricultural  pursuits. 

The  Canadian  system  of  exploitation  of  agricultural  opportunities  of  its 
western  portion  is  conceded  to  be  one  of  the  best,  if  not  the  best,  in  vogue  today. 
The  railroads,  the  banks,  the  business  interests,  and  in  fact,  all  of  the  various 
interests  in  the  Dominion  work  co-operatively  with  the  sole  idea  in  view  of 
increasing  the  population  of  the  Dominion  with  a  class  of  people  of  which  that 
country  or  any  other  may  well  be  proud. 

The  principal  thing  in  the  Canadian  method  is  the  publicity  campaign.  The 
agricultural  opportunities  of  the  Dominion  are  presented  in  more  than  7,0Q0| 
American  newspapers.  Colonization  agents  are  maintained  with  efficient  office 
force  in  sixteen  American  middle  west  cities.  Special  exhibits  are  carried 
throughout  the  United  States  and  shown  wherever  opportunity  presents  itself 
at  county  and  state  fairs  and  at  other  exhibitions  of  like  character.  The  use  of 
the  stereopticon  and  motion  picture  machines  is  extensive;  personal  letters  are 
used,  but  the  main  object  of  all  the  publicity  is  to  secure  inquiries  which}  are 
followed  up  wherever  possible  with  personal  interviews  of  representatives  of 
the  colonization  agencies. 

The  European  immigration  is  selected  and  is  not  promiscuous  as  is  the 
case  in  the  United  States.  Four  fifths  of  the  Canadian  immigration  in  the  fiscal 
year  of  1910  and  1911  came  from  the  United  States,  the  British  Isles  and  the 
Scandinavian  countries.  There  was  hardly  a  sprinkling  of  southern  and  south- 
eastern Europeans,  whereas  in  the  same  year,  of  the  900,000  immigrants 
which  came  to  the  United  States,  more  than  200,000  were  Italians. 

The  Canadian  government  takes  care  of  these  immigrants  from  the  time 
they  enter  the  country  until  they  are  located  in  their  new  homes.  Able  bodied 
men  without  capital  are  given  work  to  do,  but  special  efforts  are  exerted  to 
secure  people  with  a  small  amount  of  capital. 

The  railroads  which  own  tremendous  land  grants  in  the  western  part  of 
Canada  have  in  a  great  many  places  cut  up  these  lands  into  quarter  section  and 
half  Section  tracts,  put  fences  around  them,  built  temporary  farm  houses  and  . 
barns.  These  lands  are  sold  to  the  immigrants  at  a  slight  increase  in  price 
over  the  price  for  unimproved  lands.  The  railroads  also  make  exceedingly  low 
transportation  rates  for  this  class  of, traffic,  the  present  tariff  being  one  cent 
per  mile. 

The  immigrants  are  submitted  to  three  inspections  by  thoroughly  compe- 
tent inspectors  and  it  is  exceedingly  difficult  for  an  "undesirable"  to  secure  a 
residence  in  the  Dominion. 

A  colonization  plan  which  has  been  tried  out  with  success  in  some  parts  of 
the  United  States  may  be  outlined  as  follows :    A  company     of     enterprising 


164  City  Building. 


citizens  is  formed  into  a  stock  company  with  sufficient  capital  to  purchase  a 
large  tract  of  unoccupied  or  idle  land,  in  the  vicinity.  This  land  is  cut  up  into 
20  and  40  acre  tracts  and  improvements  are  made  according  to  the  amount  of 
capital  which  the  company  has  to  invest  in  this  manner. 

The  purpose  of  the  company  is  to  secure  the  location  upon  these  lands  truck 
farmers,  or  farmers  who  will  devote  their  time  and  attention  to  intensive  culti- 
vation of  these  farms  of  small  acreage.  The  method  adopted  to  get  in  touch 
with  probable  settlers  is  usually  through  the  Bureau  of  Immigration.  In  the 
large  seaport  cities  of  this  country  there  have  sprung  up  a  large  number  6|f 
colonization  agencies  whose  business ,  it  is  to  secure  locations  for  the  great 
armies  of  immigrants  annually  coming  into  this  country.  This  stock  company 
above  spoken  of  sends  a  representative  probably  to  New  York  who  immediately 
gets  in  touch  with  not  only  the  Bureau  of  Immigration,  but  also  the  coloniza- 
tion agents. 

It  is  always  the  purpose  of  this  agent  to  pick  his  settlers  and  the  usual  pick 
is  immigrants  from  the  countries  of  the  Scandinavian  Peninsula,  Holland,  Den- 
mark, Germany  and  the  British  Isles.  The  inducements  of  the  stock  company 
are  presented  to  the  Bureau  of  Immigration  and  to  the  colonization  agents 
and  every  effort  is  made  to  induce  them  to  send  settlers  to  these  lands. 

When  settlers  arrive  they  are  located  upon  these  small  farms.  If  they  have 
capital  so  much  the  better.  If  they  are  without  capital,  then  the  stock  company 
furnishes  them  with  a  sufficient  amount  of  money  to  purchase  their  implements 
and  live  stock.  This  money  of  course  is  loaned  to  them  and  a  reasonable  rate 
of  interest  is  charged  on  such  loans.  These  settlers  pay  for  their  farms  usually 
in  ten  annual  installments  with  a  reasonable  rate  of  interest  on  the  deferred 
payments.  The  above  outline,as  before  stated,has  been  successfully  operated 
in  a  number  of  different  communities  with  the  result  that  a  new  industry  has 
been  created  and  with  a  further  result  that  the  additional  population  through 
their  thrift,  enterprise  and  industry  has  awakened  a  progressive  spirit  among 
the  native  people  and  has  caused  these  home  people  to  bestir  themselves.  Con- 
sequently, a  sleepy  community  has  been  awakened  into  one  of  thrift  and 
progress. 

Colonization  agents  above  spoken  of  are  looking  for  choice  opportunities 
for  locating  their  clients.  The  writer  has  known  of  some  instances  where  loca- 
tions were  desired  for  as  many  as  five  hundred  German  families  in  one  com- 
pany who  desired  to  purchase  outright  their  farms,  a  number  almost  sufficient 
to  make  a  thriving  community  by  itself. 

The  example  of  the  Canadian  government  can  be  followed  to  great  advan- 
tage by  the  people  of  the  United  States  and  it  is  upon  the  successes  of  the 
colonization  development  of  the  United  States  that  the  further  welfare  of  this 
country  depends. 


A'.l 


Tbis  boo*  is  DU* ^_____ r- "" 


31Dec'48VlM 


8Dec'5CARj 
IECO  U> 


3^  itft*** 


REC'3  O* 

jam  10  «tt 


REC'D  LI 

APR3UB62 


REC'D  LD 

MAV5    1963 
&5PS 

Irecd  ud 


'Mi-1  JLo 


YC  08/52 


281505 


HT 


C(* 


rNIVERSITY  OF  CALIFORNIA  LIBRARY 


